Jennings County Comprehensive Plan
December 2012 Jennings County Comprehensive Plan
December 2012
Approved by:
Jennings County Economic Development Commission December 20, 2012
Jennings County Area Plan Commission Expected February 2013
Jennings County Board of Commissioners Expected February 2013
North Vernon City Council Expected March 2013
Vernon Town Council Expected March 2013
Prepared by:
Strategic Development Group, Inc. 2901 N. Walnut Street Bloomington, IN 47404 T: (812) 331-1282 F: (812) 331-1285 www.sdg.us
HWC Engineering Indianapolis Office 151 N. Delaware Street, Suite 800 Indianapolis, IN 46204 T: (317) 347-3663 F: (317) 347-3664 www.hwcengineering.com
ii Jennings County Comprehensive Plan Table of Contents Table of Contents
Chapter 1. Acknowledgments...... 1
Chapter 2. Introduction...... 3
Origins of the Plan...... 4
The Planning Process...... 5
Using the Comprehensive Plan...... 5
What Happens Next?...... 6
Chapter 3. Vision and Plan Summary...... 7
Key Findings...... 9
Development Principles...... 10
Recommendations...... 11
Next Steps...... 14
Chapter 4. Community Character...... 17
History and Character...... 18 History...... 18 Character...... 18 Cultural Resources...... 19 Education...... 19 Healthcare...... 20 Law Enforcement...... 20 Parks and Recreation...... 20 Economic Development Organizations...... 21 Public Buildings and Institutions...... 21 Churches...... 23
Demographic Profile...... 24 Introduction...... 24 Population...... 24 Age ...... 27 Educational Attainment...... 27 Poverty...... 29 iv Jennings County Comprehensive Plan Table of Contents
Income...... 29 Employment...... 31 Commuting...... 33 Housing...... 34 Critical Sub Area: Code Enforcement...... 36 Critical Sub Area: Town of Vernon...... 43
Chapter 5. Land Use...... 47
Introduction...... 48
Existing Conditions...... 49 Geological Conditions...... 49 Existing Land Use...... 49
Land Use Trends...... 49 Agricultural...... 49 Industrial...... 51 Commercial...... 51 Residential...... 51
Existing Zoning Map...... 53
Future Land Use Map...... 53 Development Principles...... 55 Long Term Growth Areas...... 56
Guidelines for Future Decision Making...... 59 Future Decisions: Confined Animal Feeding Operations...... 60 Commercial Design Standards...... 62 Industrial Design Standards...... 64 Residential Design Standards...... 65 Capital Improvement Plan...... 66
Zoning and Subdivision Ordinances Review...... 67 Review of Both Ordinances...... 67 Zoning Ordinance...... 68 Subdivision Ordinance...... 70 Moving From the Comprehensive Plan to Zoning Ordinances...... 72
What to Do Next...... 72
Prepared by SDG & HWC Engineering v Chapter 6. Economic Development...... 73
Existing Conditions...... 74 Local Economic Base and Labor Force...... 74 Educational Attainment...... 75 Population Trends...... 77 Income...... 77 Unemployment...... 78 Regional Economic Base and Labor Force...... 78 Major Employers...... 79 Local Economic Development Programs, Tools and Resources...... 79 Available Industrial Properties...... 80 North Vernon Municipal Airport...... 80 Muscatatuck Technology Park...... 81 Agriculture in the Economy...... 81
Economic Development Trends...... 83
Goals...... 83
Implementation Steps...... 84 Critical Sub Area: MUTC Compatible Use Area...... 85
Chapter 7. Housing...... 91
Existing Conditions...... 92 Residential Land Use...... 92 Inventory and Assessment: Single Family...... 92 Building Permits...... 93 Inventory and Assessment: Apartments and Rental Units...... 94 Current Market Snapshot...... 94 Foreclosures and Short Sales...... 94
Housing Trends...... 95 Local Realtor Perspectives...... 95 Housing Alternatives...... 96 Subsidized Housing...... 96 Local Housing Organizations...... 97 Housing Grants...... 97 Priorities and Action Items...... 97
Goals...... 97
Implementation Steps...... 98 Critical Sub Area: Country Squire Lakes...... 99 vi Jennings County Comprehensive Plan Table of Contents
Chapter 8. Natural Resources...... 103
Introduction...... 104
Topography and Geology...... 104 Karst Topography...... 105
Hydrology...... 105 Major Streams/Rivers...... 105 Wetlands...... 105 Groundwater/Aquifers...... 105 Watersheds...... 107 Floodplains/Flooding...... 107 Soils...... 107
Parks and Recreation/Natural Areas...... 109 Federal Managed Lands...... 109 State Managed Lands...... 109 County/Regional Parks and Nature Preserves...... 109
Economic Impact of Managed Lands...... 111
Trails and Greenways...... 111
Recommendations...... 113
Chapter 9. Transportation...... 115
Introduction...... 116
Existing Conditions...... 117 Interstate Access...... 117 U.S. 50...... 117 S.R. 7...... 117 S.R. 3...... 117 Rail Transportation...... 119 Public Transit/Transportation Services...... 119 Airport...... 119 Planned Transportation Improvements...... 120
Recommendations...... 121 Critical Sub Area: U.S. 50 East Bypass Impact Area...... 122
Chapter 10. Utility Infrastructure...... 127
Introduction...... 128
Jennings County Septic Systems...... 128
Prepared by SDG & HWC Engineering vii Jennings County Sanitary Sewers...... 129 Jennings Northwest Regional Utilities - Sanitary Sewer...... 129 North Vernon - Sanitary Sewer...... 130 Campbell Township Rural Sewer District - Sanitary Sewer...... 131
Jennings County Drinking Water...... 131 Jennings Water, Inc...... 131 Jennings Northwest Regional Utilities - Drinking Water...... 131 North Vernon - Drinking Water...... 131
Recommendations...... 132
Chapter 11. Implementation Plan...... 133
Helping People Understand the Plan...... 134 Training for Public Officials...... 134 Educating the Public About Planning and Zoning...... 135
How Is the Plan Adopted?...... 136
What Additional Planning Is Needed?...... 136
Funding Sources...... 136
What To Do Next...... 136
Implementation Chart...... 137
Appendix...... 147
viii Jennings County Comprehensive Plan Table of Contents List of Maps
Cultural Resources Map...... 22
Town of Vernon Map...... 44
Agricultural Intensity Map...... 50
Existing Land Use Map...... 52
Existing Zoning Map...... 54
Future Land Use Map...... 57
MUTC and Airport Compatible Use Areas Map...... 89
Country Squire Lakes Map...... 100
Environmental Resources Map...... 106
Watershed Map...... 108
Soils Suitability Map...... 110
Transportation Map...... 118
U.S. 50 East Bypass Impact Area Map...... 125
Prepared by SDG & HWC Engineering ix List of Tables
Table 1.1 Steering Committee Members...... 2
Table 4.1 List of Churches...... 23
Table 4.2 Jennings County Population Trends by Township and Place...... 26
Table 4.3 Median Household Income (Not Adjusted)...... 30
Table 4.4 Median Household Income (Inflation-Adjusted for 2010 Dollars)...... 30
Table 4.5 Employment and Earnings by Industry 2010 (NAICS)...... 32
Table 5.1 Jennings County Land Use Categories...... 55
Table 5.2 Commercial Design Standards...... 63
Table 5.3 Industrial Design Standards...... 64
Table 5.4 Residential Design Standards...... 65
Table 6.1 Jennings County Labor Force (2011-2012)...... 75
Table 6.2 Educational Attainment...... 75
Table 6.3 Annual Industry Distribution of Jobs and Average Wages in 2011 (NAICS)...... 76
Table 6.4 Population Trends...... 77
Table 6.5 Income of Jennings County Residents (2010)...... 77
Table 6.6 Major Employers...... 79
Table 6.7 Value of Sales by Commodity Group, Jennings County (2007)...... 82
Table 7.1 Jennings County Housing Data (2011)...... 93
Table 7.2 Properties orf Sale by City (October, 2012)...... 94
Table 7.3 Properties orf Sale by Price (October, 2012)...... 95
Table 7.4 Project-Based Section 8 Developments...... 96
Table 7.5 Jennings County Housing Grants...... 97
x Jennings County Comprehensive Plan Table of Contents List of Figures
Figure 4.1: Population by Decade and Current Year Estimate...... 24
Figure 4.2: Population Projections by Year...... 25
Figure 4.3: Jennings County, Indiana Townships...... 26
Figure 4.4: Age Distribution (2011 Estimates)...... 27
Figure 4.5: Median Projected Age...... 27
Figure 4.6: Jennings County Schools...... 27
Figure 4.7: Educational Attainment for Population 25+...... 28
Figure 4.8: Jennings County Educational Attainment for Adults 25 years and over...... 28
Figure 4.9: Indiana Educational Attainment for Adults 25 years and over...... 28
Figure 4.10: Enrolled in College or Graduate School: Population 18 to 24 Years...... 28
Figure 4.11: Poverty Rates...... 29
Figure 4.12: Percent Free and Reduced Lunch (SY 2010-11)...... 29
Figure 4.13: Inflation-Adjusted Median Household Income...... 30
Figure 4.14: Percent Employment by Industry in Jennings County...... 31
Figure 4.15: Percent Employment by Industry in Indiana...... 31
Figure 4.16: Commuting Trends...... 33
Figure 4.17: Occupied Housing Units Tenure (2010)...... 34
Figure 4.18: Percent Vacant Housing Units (2010)...... 34
Figure 4.19: Median Home Value for Owner Occupied Units (2006-2010 ACS)...... 34
Figure 4.20: Change in Median Home Values for Owner Occupied Units (Adjusted for Inflation)...... 35
Figure 4.21: Jennings County Residential Building Permits...... 35
Figure 6.1: Unemployment Rates for Past Year (Not Seasonally Adjusted)...... 78
Figure 6.2: Commuting Patterns...... 79
Figure 6.3: Jennings County Land in Farms by Type of Land...... 82
Figure 6.4: Jennings County Farms by Value of Sales (2007)...... 82
Figure 7.1: Jennings County Building Permits Filed 2001-2011...... 93
Prepared by SDG & HWC Engineering xi xii Jennings County Comprehensive Plan Columbus Millhousen Legend 0 8,000 16,000 Managed Lands (IDNR) Type of Land Use Non-Conforming Use Agricultural V Graphic Scale (Feet) Unincorporated Towns PUD Airport North Vernon Bypass (Western Route) Residential «¬46 Commercial Westport River or Stream Special Use Industrial E 1200 N Institutional
N N 800E
E 1000 N Elizabethtown W 1400 S
N N 600E Zenas
200 W 200
N 400 W 400 N N 400E N N E 200 N E 800 N W 800 N
Tannersville N 600 W 600 N «¬3 Brewersville
S 600 E 600 S Scipio E 600 N W 600 N W 600 N
S 600 E 600 S Nebraska
«¬7 Queensville MUTC ¤£50 N.V. E 400 N N 800E W 400 N Airport Butlerville
Oakdale N 600 W 600 N W 200 N E 200 N
W 200 N
N 400 W 400 N N E 400 N
N800 W North Vernon N 600N E Hayden Vernon ¤£50
Grayford S 400 E 400 S
San Jacinto E 800 S W 200 S Four Corners
«¬7 E 400 S W 400 S E 400 S Walnut Ridge
W 1200 N
Lovett S 200 W 200 S
W 600 S E 600 S S 400 W 400 S Staples Ford S600 W Dupont
S 200 E 200 S W 1000 N ¨¦§65 E 800 S W 800 S Commiskey
¤£31
S 400 W 400 S W
00 W 00 «¬3 S 8 S
Hilltown 200 S
Paris Crossing 250 Paris «¬ 1200 S 1
Crothersville
Acknowledgments 1 Acknowledgments
Community ownership is a key to the success of any We would also like to thank Cheryl Trisler, Executive plan. For this reason, we wish to acknowledge the Director of the Area Plan Commission and Kathy participation and hard work of Jennings County’s Ertel of the Jennings County Economic Development citizens. Residents who participated in interviews, Commission (JCEDC). The JCEDC also provided a match attended focus groups or took part in public meetings to secure the planning grant. all made valuable contributions. Appreciation is expressed to the Indiana Office of Special thanks are extended to the Jennings County Community and Rural Affairs for funding this planning Economic Development Commission board members project. and Area Plan Commission members who served as the steering committee that guided the planning Members of the consulting team who facilitated the process. process are grateful for the opportunity to continue working with your community. The members were: Scott Burgins, SDG Table 1.1 Steering Committee Members Cory Whitesell, HWC Engineering Member Organization Cory Daly, HWC Engineering Jeff Barger Jennings County Commissioner Dave Beesley Jennings County Water Catie Kosinski, SDG Jessica Brunner Jennings County EDC Scott Nees, SDG Clyde Campbell Jennings Water Lacey Dannenberg, SDG Ryan Curry North Vernon Municipal Airport Chris Ertel TIF President Matt Maloney, SDG Kathy Ertel JCEDC Executive Director Larry Fagersten Indiana National Guard Ray Hughes Jennings County APC Greg Hicks State Farm Insurance Albert Jackson EDC Board President Brad Kage Jennings County APC, Attorney Jerry Lamb EDC Board Member Brad Ponsler Farm Bureau John Post Jennings County APC Jason Sanders Erler Industries Inc. Barb Shaw Jennings County Community Foundation Cheryl Trisler Jennings County APC, Executive Dir. Chuck Waggoner TIF Attorney Dan Wright Mayor of Vernon Bill Wright Jennings County APC
2 Jennings County Comprehensive Plan 2
Introduction 2 Introduction
The Comprehensive Land Use Plan is Jennings County’s changes cover a wide range of topics such as new guide to the future. It answers fundamental questions roads, subdivisions and commercial developments. such as: The plan also covers environmental issues such as sustainability and smart growth. ÙÙ What do we want to change? ÙÙ What do we want to protect? But the comprehensive plan is not the same as zoning regulations. That more detailed level of guidance is So, how can a community change the things it doesn’t reserved for ordinances adopted during the zoning like while protecting the things it does? and subdivision control process. In many cases, though, the comprehensive plan builds the foundation One method is land use planning, which lays out the for regulation changes. community’s priorities and sets goals on how to reach them. This document reflects community goals, as interpreted through a five-month process including Some have questioned how effective is planning in steering committee meetings, interviews and public tough times, but that question is best answered in hearings. reverse: Is Jennings County more likely to achieve its goals and are its residents more likely to prosper with The planning process attempted to be as efficient or without a plan for the future? as possible. To begin, the consulting team reviewed strategies and goals from the county’s 1994 comp plan Decisions made without reference to a plan are and the North Vernon Comprehensive Plan, completed frequently reactionary, responding only to specific in 2009. Goals and action steps were revised based problems or proposals. But a long term view is needed on current trends – most notably the path of the U.S. in order to keep the county from growing or shrinking 50 bypass – and input from stakeholders and steering simply by accident. It is vital for decision-makers to committee members. have a shared reference point, or at least a collective set of relevant facts. It is long-range in orientation – intended to reach out 15 to 20 years – but is specific enough to guide the day- Other potential benefits of planning include providing to-day activities of the county’s elected and appointed services more efficiently, directing development to officials. areas with sufficient capacity to support it, making sure adjacent uses are compatible and protecting Origins of the Plan property values. The Jennings County Comprehensive Plan was funded The document is an advisory tool for the county by a grant from the Indiana Office of Community commissioners, mayors, board of public works, plan and Rural Affairs. The Jennings County Economic commission, city and town councils, staff and interested Development Commission contributed a match to citizens when land use changes are proposed. These receive the grant.
4 Jennings County Comprehensive Plan Chapter 2 Introduction The Planning Process is more sudden, such as the location of a large new industry in a small community or the loss of a major In Indiana, comprehensive planning is permitted by the employer. 500 Series of Title 36-7-4 of the Indiana Code. This law empowers towns, cities and counties to adopt plans. The Jennings County Area Plan Commission and Any plan adopted in Indiana must contain at least the Jennings County Economic Development Commission following three elements: oversaw creation of the comprehensive plan. Elements of the process included: ÙÙ A statement of objectives for the future development of the jurisdiction. ÙÙ Key Stakeholder Interviews: Representatives from utility companies, officials from incorporated ÙÙ A statement of policy for the land use development communities and others were interviewed during of the jurisdiction. the process. ÙÙ A statement of policy for the development of public ÙÙ Public Meetings: A public meeting was held during ways, public places, public lands, public structures, an APC meeting to gather input from members of and public utilities. the public and present the plan. In addition, all In addition, the law provides for a number of optional steering committee meetings were open to the elements, including, but not limited to parks and public. recreation, flood control, transit and natural resource ÙÙ Steering Committee Meetings: The committee protection. While each planning process should be met five times to set priorities and discuss options. custom-designed to meet community needs, nearly all Review teams made up of local committee contain the same core elements as found in this plan: members edited every chapter. ÙÙ Project Website: This site - http://www.sdg.us/ ÙÙ Evaluate existing conditions, including strengths jennings-county-comprehensive-plan/ - was used and weaknesses, community character, demo- to post all of the minutes from steering committee graphics, natural features, etc. meetings as well as draft chapters of the plan. ÙÙ Establish goals and objectives for the future ÙÙ Identify alternatives for meeting the goals and Using the objectives Comprehensive Plan ÙÙ Select the most desirable alternative ÙÙ Devise and adopt tools to implement the plan For the comprehensive plan to produce results, it must (zoning, subdivision control, capital improvement be understandable and able to be implemented. The programming, etc.) following paragraphs will assist in understanding how to use the plan. ÙÙ Evaluate the success of the plan ÙÙ Revise the plan Topic Chapters
These steps are part of a continuing process. Plans Topic chapters include: community character, land must be evaluated and updated as the community use, economic development, housing, natural changes. These community changes can be gradual, resources, transportation, and utility infrastructure. such as demographic trends, technological change or The chapters are mostly self-contained examinations slow economic growth or decline. Sometimes change of specific issues. They include research, strategies
Prepared by SDG & HWC Engineering 5 and recommendations. Besides making the reader What Happens Next? well versed in the topic, they outline years of projects for tackling problems. Several chapters That depends upon the people of Jennings County. include special sections for Critical Sub Areas. All of Once the comprehensive plan is completed a the recommendations are gathered together in the county can take many actions – or none at all. The Implementation Plan. Implementation Chapter provides a step-by-step guide to working toward the plan’s goals. Tips for Plan Commissioners and County Officials But whatever the final results, the entire community now has a document that lists its challenges and When properly applied, a comprehensive plan can priorities, along with the research, maps and strategies make the life of the decision-maker easier. Community to address Jennings County’s future. leaders can point to the research or maps while explaining how they reached their decision. They can refer to the input of the local leaders and residents whose opinions helped shape the plan’s goals.
They can also ask themselves how they make decisions without a plan. Certainly their experience in Jennings County guides their judgment, but a group of people making decisions based on their individual perceptions may not lead to a shared vision of the county’s future. The comprehensive plan provides a defensible, unified vision.
Changes to the Comprehensive Plan
The final word on the Jennings County Comprehensive Plan is that circumstances change, and the plan should be modified to change along with them.
This may not mean a complete update, but every year or so the planning commission and others should review the plan to make sure it is current.
It would be a poor use of the resources poured into creating this plan to let it slowly grow outdated, while the need for current planning does not.
6 Jennings County Comprehensive Plan 3
Vision and Plan Summary 3 Vision and Plan Summary
“I see this plan as a roadmap to opportunity.”
“I hope it puts us in the right direction for potential growth and preserving areas of natural beauty.”
Those were two of the most common expectations 2. Emphasize the need to revitalize areas that have heard during the planning process. But at the same already been developed instead of allowing time, community leaders acknowledged that the growth and the extension of costly infrastructure dismal national economy and other local conditions into new areas. have left them without a lot of resources to build upon. The plan also corrects some polices from the previous As a result, the steering committee created a comprehensive plan which has contributed to local conservative plan that takes an incremental approach problems. For example, that plan, completed in 1994, to preparing for the future. discouraged zoning for upscale housing. To keep building costs low, it recommended against requiring For example, the plan details how a mix of small new housing developments to put in curbs, sidewalks investments in neighborhood revitalization and and other community-building infrastructure. carefully considered extension of infrastructure can save taxpayer’s money while also addressing Jennings Almost 20 years later, the county now has a shortage County’s problems. of upper-income homes, meaning people with good, local jobs find housing in other communities such as The plan shows that more can be done, that even in Columbus. There is, however, not a shortage of poorly a depressed economy leaders can set the bar higher. constructed homes and neighborhoods, some of them In fact, local government doesn’t have to create any in dire need of repair. new regulations to see positive results. They simply have to commit themselves to enforcing the rules they Some corrections have been made since the previous already have. plan. For example, subdivisions now require sidewalks and other infrastructure. But again and again steering And so this plan is not filled with recommendations for committee members discussed how waving their own new rules and restrictions. Instead, it is designed to: regulations to allow growth almost anywhere and not enforcing simple health and safety rules have led to 1. Show the importance of planning and investment, public expenses. even if both the local economy and population are not growing. This is a particular concern in rural areas such as Jennings County. As one steering committee member
8 Jennings County Comprehensive Plan Chapter 3 Vision and Plan Summary said, “One concern about the plan is that land zoned Key Findings for agricultural use does not mean that ‘anything goes’.” Each chapter contains information on current conditions and future trends. Here are the highlights. Despite the challenges, there are many positive signs for the county’s future. One of the biggest is North Land Use Vernon winning a $16-million Stellar Communities ÙÙ One of the largest factors impacting any new grant from the state. That money is being used to development is the location of available sanitary revitalize downtown. That sort of improvement can sewers. Since there is currently only one public draw more investments for new homes and businesses. wastewater treatment plant in the county, most The Stellar grant was awarded so that the city could growth will be centralized around it, in areas better serve one of Jennings County’s other big assets, surrounding North Vernon. the Muscatatuck Urban Training Center (MUTC). ÙÙ The U.S. 50 bypass will prompt changes in land Both Stellar and MUTC are important because of use patterns in upcoming years. A detailed what they contribute to the community’s quality of plan has been developed with specific land life. Although the term is vague, standard indicators use recommendations along this route. These of quality of life include wealth and employment, recommendations can be found in the Critical Sub the built environment, physical and mental health, Area: U.S. 50 East Bypass Impact Area. education, recreation and leisure time. Developing the ÙÙ Jennings County has done a good job of managing community’s quality of life – along with protecting its its zoning map to match its future land use map. beautiful rural landscape – will create a very desirable Few examples of county spot zoning could be place to live and work. identified. As a result, few changes to the future land use map are recommended in this chapter The U.S. 50 bypass, now under construction, could (outside of the area of the U.S. 50 bypass). also open opportunities for growth along the new route. As an investment in the future, some of that Economic Development land should be dedicated to industrial development. ÙÙ Manufacturing is still a major driver of the economy The bypass’ likely route will cut through two of the in Jennings County, as it accounts for nearly one- community’s industrial parks, which will leave it with fourth of local employment and offers wages that less acreage, including some on a state certified shovel- are among the highest on average of any industry ready site. One site has 54 acres and the other 40, in the county. so even removing the usual land for highway right-of- ÙÙ Industries in which employment is more ways will leave a significantly smaller parcel to market. concentrated than the national average include: advanced materials, technology, chemicals The steering committee’s top priorities are summarized and chemical-based products, forest and wood in this chapter. At every step of this process, using products, transportation and logistics, primary newspaper notices, public meetings, a project website metal manufacturing, fabricated metal product and other resources, the committee created a planning manufacturing, machinery manufacturing, process that is open and transparent. That same transportation equipment manufacturing. approach will be used as Jennings County takes its next steps toward planning. ÙÙ Jennings County is a net exporter of labor, with approximately three times as many residents
Prepared by SDG & HWC Engineering 9 commuting outside the county for work as ÙÙ Approximately 1 percent of county is used for commute into it from other counties. The majority urban and industrial uses. of these commuters work in either Bartholomew or Jackson counties. Transportation ÙÙ Completed construction of the U.S. 50 bypass will ÙÙ While nearly 23 percent of Indiana residents have open up new areas of the county for economic a Bachelor’s degree or higher, only 9 percent development. Jennings County and North of Jennings County residents have that level of Vernon should work closely together to manage educational attainment. development to the greatest benefit of all. ÙÙ The likely eastern route of the U.S. 50 bypass will ÙÙ Completion of the U.S. 50 bypass may mean that cut through two of the community’s industrial existing traffic patterns will shift to access points parks, which will leave it with less acreage, along the new bypass. This means that roads which including on a state certified shovel-ready site. As are adequate to handle current traffic volumes may an investment in the future, new land should be be subject to increased wear, deterioration, and dedicated to industrial development. congestion due to potentially increased volumes Housing of local and regional traffic. ÙÙ Jennings County’s population growth has slowed ÙÙ The North Vernon Municipal Airport is an relative to growth at the state level, increasing important resource for Jennings County residents by just 2.3 percent since 2000. Slow growth is and business. This asset has also been identified projected for the next decade. as an important factor in the continued and expanded operations of the Muscatatuck Urban ÙÙ The 44 building permits issued in 2011 amount to Training Center. less than a quarter the number of permits issued just 10 years prior. Utility Infrastructure ÙÙ Foreclosures are widespread throughout the ÙÙ Economic development and quality of life are county and constitute the largest ongoing problem intertwined in Jennings County. There is room here for the Jennings County housing market, according to promote new land for industrial development to local real estate agents. and other types of economic growth in defined areas while protecting our rural landscapes. ÙÙ Desirable areas likely to experience continued growth are in the northern and western parts of the county, especially areas close to larger towns, Development like North Vernon. There is also some movement Principles in executive housing throughout the county in the $200k-$250k+ range, though activity is still limited, Development principles are the foundation of the according to local real estate agents. comprehensive plan and should guide decisions makers as they interpret the document. They answer Natural Resources the question: “What is important to our community?” ÙÙ The primary land use is farmland with approximately 36 percent of land being cropland, Land Use Planning & Enforcement 6 percent pasture and 57 percent woodland. We believe in committing resources for fair and consistent code enforcement. Money, time and
10 Jennings County Comprehensive Plan Chapter 3 Vision and Plan Summary political will are all needed to ensure that the rules Agricultural Land protecting our quality of life are evenly and fairly County regulations need to be updated to balance enforced. the rights of both existing farmers and existing rural residences. Operation of existing farms should not be Reinvestment vs. New Growth limited by new housing development. At the same We favor the revitalization of developed areas time, new industrial level farming (such as CAFOs) over allowing growth and the extension of costly should be located away from existing residences. The infrastructure into new areas. There are long term, community should begin a discussion on the location costs in new development that later must be paid by and types of more intensive agricultural practices. local government and taxpayers. Housing North Vernon Jennings County must work to improve the quality and The county will continue working with the City of North attractiveness of its neighborhoods, in particular its Vernon on shared concerns, such as code enforcement affordable housing stock. County-led initiatives toward and taking advantage of growth possibilities tied to the this goal should include enforcement of standards for U.S. 50 bypass. rental units, clean-up plans for vacant lots and stricter regulation of manufactured homes. With this work Vernon underway, the county will be in a better position to attract investment in higher-rate homes. The Town of Vernon’s historic buildings and its potential for development as a tourism site must be protected and promoted. U.S. 50 Bypass Construction of the U.S. 50 bypass will open up new Economic Development areas of the county for economic development. Jennings County and North Vernon should work closely Economic development and quality of life are together to manage development to the greatest intertwined in Jennings County. There is room here benefit of all. to promote new land for industrial development and other types of economic growth in defined areas while protecting our rural landscapes. Recommendations The recommendations from each chapter and Critical Utilities Sub Area (CSA) are listed briefly below. Detailed Jennings County should direct development toward recommendations can be found in each chapter and in areas that can be served by water and sanitary sewer the Implementation Plan. systems. The county should continue to cooperate with private and public utilities in future master Land Use planning to accommodate this development. ÙÙ Revise the zoning map to adequately reflect community goals in the four areas: (1) Agricultural Recreation and Greenspace (2) Residential (3) Industrial (4) Commercial.
Greenspace and multi-use trails contribute to a ÙÙ Update the Zoning Code. community’s quality of life, which in turn benefits its economy. More can be done to enhance the county’s ÙÙ Update the Subdivision Code. natural features.
Prepared by SDG & HWC Engineering 11 ÙÙ Create and maintain a Capital Improvement Plan. blighted areas.
Economic Development ÙÙ Explore options for neighborhood revitalization in certain areas, including the Country Squire Lakes ÙÙ Ensure that there is an adequate supply of community and any other areas identified as larger, shovel-ready industrial sites where the suitable candidates for revitalization. planning and zoning, infrastructure, site tests and environmental reports, and ownership status are ÙÙ Pursue housing grant options to fund the clearly resolved. aforementioned projects.
ÙÙ Create multiple agricultural zones for different ÙÙ Form a housing coalition or taskforce to address types of agriculture. local housing issues.
ÙÙ Define objective development standards within Natural Resources Zoning Ordinances that must be met as conditions ÙÙ Abundance of managed lands can be a county for permitted use for new agricultural facilities, resource and should be viewed as a potential rather than have a special exception process for economic development resource for the new facilities. local economy. The community should study ÙÙ Develop a site scoring system based on objective opportunities to take advantage of these criteria to determine whether new facilities meet properties. the conditions set forth in zoning ordinances. ÙÙ The unique position of the county between two ÙÙ Increase code enforcement to prevent the national wildlife refuges, availability of other appearance of blighted commercial buildings. managed lands for wildlife activities, and proximity to I-65 corridor uniquely positions county to take ÙÙ Develop a formal economic development plan for advantage of this type of tourism revenue. Jennings County. ÙÙ As surface water from the Muscatatuck River ÙÙ Initiate a countywide branding campaign to provides water service for the majority of county promote Jennings County as a regional destination. residents, protection of this resource is of the Housing highest priority. Development protections should be considered along both sides of the Muscatatuck Ù Ù Make amendments to Zoning and Subdivision River throughout the community, and especially Ordinances to comply with planning-related state between North Vernon and the Brush Creek law changes that went into effect in July 2011. Reservoir. A long term goal of establishing a ÙÙ Employ basic design standards to improve the conservation corridor along the river is also appearance of new residential development. recommended to protect linkages between the various protected forest lands in eastern Jennings ÙÙ Conduct a countywide housing needs assessment County. to provide a thorough analysis of the housing market and detailed recommendations improving ÙÙ The potential for failing septic systems to negatively and diversifying the county’s housing stock. impact local water quality is high. Jennings County should work towards improving the current system ÙÙ Make active code enforcement a priority to of septic system dependent site development address the number of houses in foreclosure and review.
12 Jennings County Comprehensive Plan Chapter 3 Vision and Plan Summary
ÙÙ Prepare a county-wide park and recreation master enticing location for additional logistics and plan, and marketing plan with North Vernon, IDNR, military industry development. and USFWS to provide a cohesive campaign to Utility Infrastructure highlight natural resource areas. ÙÙ New commercial, industrial and residential ÙÙ Consider identification and development subdivision growth should be directed into areas protections of significant karst topography within that are served by existing water and sanitary Jennings County. Apply development protections sewer systems. similar to those recommended for the Muscatatuck River watershed. By encouraging the appropriate ÙÙ The county should work with the City of North use of these areas through policy actions and Vernon to plan for the mid-to-long term growth land use controls Jennings County will be taking opportunity in western Jennings County along the great steps towards the protection of valuable U.S. 50 corridor. Until sanitary sewers are available, water supplies while also helping to ensure that development should be limited in these areas. potentially high costs associated with development ÙÙ The county should develop updated standards for on these unstable surfaces is avoided. septic systems. Commercial, industrial, and larger ÙÙ Jennings County should work with the Soil and residential subdivision developments should be Water Conservation District to explore ways to directed toward areas with public sanitary sewer make informed future land use decisions based systems. upon an analysis of development suitability. Critical Sub Areas Transportation Code Enforcement ÙÙ Develop a county-wide long range transportation ÙÙ Consider – over time – stockpiling a fund that plan which considers the possible long term would allow the county to pursue legal cases effects on local roadways connected to the U.S. 50 against the most egregious offenders. bypass corridor and long term needs based upon ÙÙ Further explore other enforcement systems, such predicted development growth patterns. as ticketing, to see if they would be more effective. ÙÙ Continue ot work with INDOT in evaluating the long ÙÙ For problem lots, new property owners should term traffic needs of the S.R. 7 and S.R. 3 corridors. first have to obtain permits for land improvements Ensure that the necessary roadway improvements and then, when land meets code regulations, the are in place prior to, or in conjunction with, owners may receive the deed to the land. approved industrial and commercial development. ÙÙ Farmers and businesses need to be encouraged to ÙÙ Work with the North Vernon Airport Authority and purchase the correct permits. MUTC to ensure the required airport safety zones are respected and that approved improvements ÙÙ It would be beneficial if the APC could find an surrounding the airport facility are compatible individual with grant writing experience. with the long range plans for airport operations. Town of Vernon ÙÙ Work with the North Vernon Airport Authority ÙÙ Vernon should revisit the possibility of requiring and MUTC to determine the potential for taking some sort of design standards or historic advantage of excess airport capacity and the preservation for buildings, at least on the main proximity of the U.S. 50 bypass to develop an square.
Prepared by SDG & HWC Engineering 13 MUTC Compatible Use Area U.S. 50 East Bypass Impact Area ÙÙ Establish a MUTC Influence Zone Overlay district. ÙÙ Work with U.S. 50 Bypass Community Advisory The intent of this district is to identify the areas Committee to provide guidance on selection of a around MUTC that take into consideration the preferred eastern corridor alternative. direct and indirect implications of the training ÙÙ Support the original land use goals of the U.S. 50 facility. This ordinance should recognize the bypass plan identified in the 2009 North Vernon rights of property owners to continue to use their Comprehensive Plan. Some modifications are property as they have in the past. It should also proposed on the updated land use plan to reflect identify types of new development that would alignment changes made since that plan was be appropriate in the district, and give MUTC developed. the ability to voice any concerns with proposed development before permits are issued. It would ÙÙ Work with APC and City of North Vernon to also be appropriate to consider requiring a waiver update the bypass section of the North Vernon acknowledging the issues in the district prior to Comprehensive Plan so that there is one common approval of new developments. land use plan adopted for the corridor.
ÙÙ Update Jennings County Zoning Maps and ÙÙ Develop a master plan for a business/industrial Ordinances to recognize and define land uses park on U.S. 50 between North Vernon and MUTC. compatible with MUTC within the overlay zone. Ù This effort should also be undertaken for areas Ù Work with utility providers to develop an surrounding the North Vernon Municipal Airport. incremental improvement plan to ensure that development does not jeopardize the integrity ÙÙ Jennings County should undertake planning efforts of the utility services and to ensure planning of for improved short term and long term housing appropriate utility improvements to allow for facilities to accommodate military personnel and implementation of future development plans. training operations participants. ÙÙ Ensure that appropriate land preservation ÙÙ It is imperative that the county assess ongoing measures are in place to help protect and preserve impacts to local roads from additional traffic watersheds (especially along the Muscatatuck volumes and heavy equipment hauling related River), prime agricultural land, and greenspace. to convoy vehicles traversing through Jennings County. These assessments should be summarized Next Steps and incorporated into long range transportation planning efforts. Jennings County should consider Implementation is the most important factor in developing a county road access plan to manage ensuring the success of a comprehensive plan. transportation issues when roads are closed due The final chapter of this plan includes a detailed to MUTC exercises and trainings. implementation guide.
Country Squire Lakes After implementation, periodic review is needed to ÙÙ Increase communication between CSL residents keep the goals of the plan alive. Every year or so the and county officials to move toward shared goals. area planning commission, elected officials and other leaders should review the implementation plan and ÙÙ Formalize a comprehensive plan for CSL and its make note of possible future changes. relationship to the rest of Jennings County.
14 Jennings County Comprehensive Plan Chapter 3 Vision and Plan Summary
For example, the biennial comprehensive plan review team might include:
ÙÙ APC members
ÊÊ APC president
ÊÊ One additional BZA member
ÊÊ City council representative
ÊÊ County commission representative
ÊÊ County council representative
ÙÙ Other members
ÊÊ Mayors
ÊÊ Economic development representative
ÊÊ School corporation representative
ÊÊ Agricultural representative
A lot of community time and resources went into the completion of this comprehensive plan and it will take even more resources for it to succeed. By working together, the community can ensure that it’s moving toward a better-planned, more prosperous future.
Prepared by SDG & HWC Engineering 15 16 Jennings County Comprehensive Plan 4
Community Character 4 Community Character
History and Character area and made it a historical crossroads of railway shipping. North Vernon has produced several notable History writers and poets including Jessamyn West, a famous Quaker writer who is most well known for her acclaimed Jennings became an official Indiana county effective work “The Friendly Persuasion” that was later made February 1, 1817. The county was named for the first into an acclaimed film starring Gary Cooper. governor of the state of Indiana, Jonathan Jennings. Jennings County is in south central Indiana and is Character located southeast of Indianapolis and northeast of Louisville. The county seat is Vernon, the geographic Much of Jennings County’s land use is dedicated to center of the county and one of two incorporated agriculture, and the county has maintained its rural places within the county. The City of North Vernon was feel and charm to this day. North Vernon is the county’s founded by two civil war heroes, Colonel Hagerman largest city with a population of over 6,000 people but Tripp and Hiram Prather, and incorporated in 1867. preserves a small town appeal. The rural setting of the Jennings County has noteworthy historic involvement county provides many opportunities to enjoy nature in the Underground Railroad including row houses and wildlife in parks and along trails. with underground tunnels used to hide slaves escaping to the north. Jennings County history is preserved and available to the viewing public at the North American House, a The City of North Vernon in the nineteenth century museum operated by the Jennings County Historical was known as the “Crossroads of Indiana.” It gained Society. The North American House museum features this title in thanks to the more than ninety trains that historic artifacts on display in a building originally traveled through the city. The city’s centralized location constructed in 1838 as a stage coach stop and inn. between Indianapolis, Cincinnati and Louisville has The historical society sponsors four events during the been one of its means of attracting businesses to the year that bring more than 35,000 visitors to Jennings County. These events include the Sassafras Tea Festival and civil war reenactment as well as a Labor Day antique and craft festival. Other events in the county include the soap box derby and Relay for Life in May as well as the Jennings County Fair in June.
Jennings County provides residents and visitors with a range of entertainment options. There are two golf courses: Ford’s Crossing and St. Anne’s. Film lovers in Jennings County can head to select screenings at the historic Park Theatre Civic Centre for a unique film viewing experience. Outdoor lovers have an abundance of opportunities in Jennings County, including Crosley Historic downtown Vernon, Indiana
18 Jennings County Comprehensive Plan Chapter 4 Community Character
State Fish and Wildlife Area and Muscatatuck State Muscatatuck River and is the location of the county Park. The North Vernon parks department maintains courthouse. Vernon is the smallest town in the state the city pool for residents looking to cool off on a hot with the distinction of being the county seat. summer day. North Vernon has several of its districts listed on Cultural Resources the National Register of Historic Places including the Downtown Historic District, the State Street Historic The Cultural Resources Map on page 22 shows many District, and the Walnut Street Historic District. of the resources described below and listed on the The Downtown Historic District is noted for its following pages. significance as the traditional center of commerce and transportation in the area. The State Street Historic One of Jennings County’s most cherished cultural District is significant to the social history of the area institutions is the Park Theatre Civic Centre in North and for the distinguished architecture of its homes Vernon. The theater originally opened in 1916 featuring and churches. The Walnut Street Historic District is performances of vaudeville acts and silent films. The noted for its historic homes built in a late Victorian theatre fell upon rough times in the 1960s and was Architectural style. forced to close its doors due to declining business. In the 1990s a group of individuals created a not-for profit Education organization to renovate the theatre and open its doors to the public once again. The theatre underwent a 1.3 Public Schools: million dollar renovation and reopened in 2003. The Jennings County Academy of Learning theatre is now one of the centerpieces of a revitalized 100 Webster St. downtown North Vernon. North Vernon, IN 47265 812-346-7830 Jennings County has seven places designated as historic by the National Register of Historic Places including the Jennings County Special Programs Benville Bridge and Edwards Ford Bridge, which are part 34 W. Main St. of the U.S. Army proving ground and are noteworthy North Vernon, IN 47265 achievements of engineering. Also recognized as a 812-346-3043 ext. 1 place of historical importance is the Vernon Historic District. This district is nearly surrounded by the Jennings County Education Center 1200 West O & M North Vernon, IN 47265 812-346-2905
Scipio Elementary School 6320 N Hwy 7 Scipio, IN 47273 812-392-2055
Sand Creek Elementary School 1450 W CR 500 N North Vernon, IN 47265 Park Theatre Civic Centre in North Vernon, Indiana 812-352-9343 Prepared by SDG & HWC Engineering 19 North Vernon Elementary School Hospice of Jennings County 810 W. Walnut 245 Norris Avenue North Vernon, IN 47265 North Vernon, IN 47265 812-346-4903 812-346-5944
Hayden Elementary School Jennings Healthcare Center 55 S CR 685 W 701 Henry Street Hayden, IN 47245 North Vernon, IN 47265 812-346-2813 812-346-9333
Graham Creek Elementary School Fire Departments 7910 S CR 90 W North Vernon Fire Department Commiskey, IN 47227 511 Buckeye Street 812-346-4179 North Vernon, IN 47265 812-346-7438 Brush Creek Elementary 4275 E. US Hwy 50 Jennings County-EMS-Rescue North Vernon, IN 47265 925 South State Street 812-458-6582 North Vernon, IN 47265 812-346-4715 Jennings County Middle School 820 W. Walnut St. Law Enforcement North Vernon, IN 47265 812-346-4940 Jennings County Sheriff 925 South State Street Jennings County High School North Vernon, IN 47265 800 West Walnut Street 812-346-5111 North Vernon, IN 47265 812-346-5588 North Vernon Police Department 101 North Madison Avenue Non-Public Schools: North Vernon, IN 47265 812-346-2345 St. Mary’s School 209 Washington St. Parks and Recreation North Vernon, IN 47265 812-346-3445 Jennings County boasts a wide array of opportunities to experience nature including two national wildlife Healthcare refuges, two state fish and wildlife areas, a state forest, and a state nature preserve. More information St. Vincent Jennings Hospital on these parks can be found in Chapter 8 Natural 301 Henry Street Resources in this plan. North Vernon, Indiana 47265 812-352-4200 Muscatatuck Park features an opportunity to see many different types of wildlife within its diverse landscape.
20 Jennings County Comprehensive Plan Chapter 4 Community Character
Guests of the park can experience cliffs, caves, springs Hayden Historical Museum and waterfalls in their time at Muscatatuck Park. The Hayden, Indiana 47245 park is also known for its fall foliage and spring wild 812-592-8445 flowers. Park Theatre Civic Centre Muscatatuck Park 25 North Madison Avenue Vernon Township, Indiana North Vernon, IN 47265 812-346-2953 812-346-0330
Eco Lake Park is a new park that was recently given Economic Development to Jennings County. The property features 127 acres of fields and forested land with a 14-acre lake that Organizations will be designated as an IDNR Public Access Site. Eco Jennings County Economic Development Commission Lake Park is open to the public with limited amenities. 1865 West US Hwy 50 Fishing, hiking, and picnicking are available. North Vernon, IN 47265 (812) 346-2388 Eco Lake Park SR 7 at CR 925 N near Wilson Chapel Jennings County Chamber of Commerce 812-346-2953 524 North State Street North Vernon, IN 47265 Muscatatuck National Wildlife Refuge comprises 7,802 812-346-2339 acres of preserved forest, wetland and grassland habitat. This refuge is known as an outstanding bird Jennings County Area Plan Commission watching site and is visited by approximately 185,000 Vernon, IN 47282 visitors a year. 812-352-3005 Muscatatuck National Wildlife Refuge 12985 E. U.S. Hwy. 50 Public Buildings and Seymour, IN 47274 Institutions
North Vernon City Park Jennings County Auditor North Vernon, Indiana Vernon, IN 47282 812-346-9371 812-352-3016
Twin Cities Raceway Park Jennings County Courthouse 445 North County Rd. 25 E 24 North Pike Street Vernon, Indiana 47282 Vernon, Indiana 47282
Ford’s Crossing Golf Course North Vernon Mayor’s Office 502 South Madison 143 E. Walnut Street North Vernon, IN North Vernon, IN 47265 812-346-4653 812-346-3789
Prepared by SDG & HWC Engineering 21 Cultural Resources Map Columbus Millhousen Legend 0 8,000 16,000 Managed Lands !a Cemetery !b Library Incorporated Areas !_ Education !; Museum V Graphic Scale (Feet) Unincorporated Towns !Y Emergency !Y Law Enforcement
North Vernon Bypass !Y Fire Station !8 Recreation Site Westport
Western Route !c Healthcare !a Religious !aE 1200 N
!N Historic District/Site Trail !a
N 800 E
!8 E 1000 N W 1400 S !a Elizabethtown !a
N 600 E Zenas !a !a !a !a W 200 !a !8 !8 400N W !a
!a N 400 E
!a !a N 200 E E 800 N
W 800 N Tannersville 600N W «¬3 !a !a «¬7 Brewersville
S 600 E S !Y Scipio !a !_ !8 !a !8 !a W 600 !aN Brush Creek W 600 N !a S 600S E Fish & Wildlife Area!a !8Nebraska !8 !a !_ !Y !a !8 Queensville !8 MUTC £50 !Y ¤ N 800 E N.V. E 400 N !8 W 400 N !a !a !a !a Airport Selmier !a Butlerville N kj!a State Forest !Y ! !8 !a !a !_
kj N 600 W N Oakdale !8 !ba !Y E 200 N W 200 N !a !a W 200 N GF !8!a !a!a !c !8 !a N 400N W !_a !N GF !_ !a !Ya!Y !a !a!_N!8!8 !a !N!N!_ Violet and Louis J. Calli Sr. Big Oaks National !_ !a N 800 W North Vernon !_ !8 Nature Preserve Wildlife Refuge !8 N 600 E !; !a Hayden GF Vernon!;!Y!Y!8 !a !a !_!Y !a !N!a !a !a !N £50 !a ¤ !8 !a Grayford
!a 400 E S San Jacinto 800S E !a W 200 SxW 200 S !a!aFour Corners !a Crosley Fish and !a Wildlife Area !a !a Muscatatuck !a National !a !a «¬7 Wildlife Refuge !a !a Sarah!8 Lewis!a Guthrie E 400 S W 400 S E 400 S Walnut Ridge !a Memorial!8 Woods Nature Preserve Lovett
S 200S W !Y !a !a !a !a !8
E 600 S S 400S W S 600S W W 600 S !a Staples Ford !a Tribbett's Woods Dupont S 200S E W 1000 N Nature Preserve !a
!a Wells Woods !_ E 800 S W 800 S Nature Preserve !a !8 Commiskey
S 400S W «¬3
!a 800 W S 250 !8
«¬ 200 W S Hilltown!a !a Paris Crossing !Y!8 Paris
1200 S
22 Jennings County Comprehensive Plan Chapter 4 Community Character
North Vernon Utilities Department Table 4.1 List of Churches 275 E Main Street Name Location North Vernon, IN First Christian Church North Vernon 812-346-4691 St. Mary's Catholic Church North Vernon Wesleyan Church North Vernon North Vernon Street Department First United Methodist Church North Vernon 350 Euler Court First Apostolic Church North Vernon North Vernon, IN 47265 Bethel Baptist Church North Vernon 812-346-1616 Christ Baptist Church North Vernon First Baptist Church North Vernon North Vernon Stormwater/Wastewater Department Church of Jesus Christ of LDS North Vernon 725 N. Greensburg Street Corinthian Missionary Baptist North Vernon, IN 47265 North Vernon Church 812-346-1496 First Church of the Nazarene North Vernon Harvest Baptist Church North Vernon North Vernon Water Plant Christ's Way Christian Church North Vernon 439 9th Street Harms Street Church of Christ North Vernon North Vernon, IN 47265 Vernon Baptist Church Vernon 812-346-2037 Vernon Presbyterian Church Vernon References Jennings Church of Christ North Vernon Church of God North Vernon • Jennings County Economic Development Commission http:// Lord of Life Lutheran Church North Vernon www.jenningsedc.com/ First Assembly of God North Vernon • Muscatatuck Park http://www.muscatatuckpark.com/ Grayford Road Church of God North Vernon • U.S. Fish and Wildlife Service http://www.fws.gov/refuges/ profiles/index.cfm?id=31530 Scipio Presbyterian Church Scipio • Jennings County Chamber of Commerce http://www. Butlerville Mennonite Church Butlerville jenningscountychamber.com/index.php Bible Baptist Church North Vernon • Jennings County Indiana History and Pioneer Genealogy http:// www.countyhistory.com/jennings/start.html St. Joseph Church Spencer • Jennings County Historical Society http://www.jenningscounty. North Vernon SDA Church North Vernon org/underground.php Queensville Community Church North Vernon • The City of North Vernon, Indiana http://www.northvernon-in. Church of Christ North Vernon gov/history.php Graham Presbyterian Church North Vernon • Park Theatre Civic Centre http://www.park-theatre.org/ Centerville Community Church Lovett • National egister R of Historic Places http://www. nationalregisterofhistoricplaces.com/IN/Jennings/state.html Pleasant View Church Sand Creek • Jennings County Historical Society http://www.jenningscounty. Zenas Baptist Church Zenas org Churches
Places of worship are prevalent in Jennings County. The following list was compiled based on information in the Yellow Pages and Indiana Home Town Locator.
Prepared by SDG & HWC Engineering 23 Demographic Profile The U.S. Census Bureau made data available for all areas of 20,000 people or more in 2008. Beginning in Introduction 2010, and every year thereafter, the nation will have a five-year period estimate available, a resource that This section provides an in-depth look at the Jennings will show change over time, even for neighborhoods County demographic makeup. It explores important and rural areas. topics such as employment, education, age, and poverty. Each section is comparative, meaning that The data used in this report comes from sources Jennings County is examined side-by-side with state, including the Indiana Department of Education, the and sometimes regional, trends. Additional insights Indiana Department of Revenue, and the National Low are frequently provided to give the reader a complete Income Housing Coalition. Additionally, demographic and accurate picture of Jennings County today and information estimates for 2011 from the U.S. Census, reveal where it is headed in the future. were used frequently for analysis of Jennings County.
Most of the demographic data available for Jennings Population County as of September 2012 is based on the most recent U.S. Census survey that was taken in April As Figure 4.1 shows, the population of Jennings 2010. While the Census Bureau conducts smaller scale County grew steadily since 1930 through 2010. The surveys between decennial years, the bureau does last census, recorded in 2010, revealed a population not analyze geographic areas with a population of gain of 971 since 2000. The U.S. Census Bureau in 2000 65,000 or less based on the Census Bureau population ranked Jennings County’s population as 56th out of 92 estimates. Indiana counties; the county still ranked 56th out of 92 counties in 2010. According to the Census Bureau,
FIGURE 4.1: Population by Decade and Current Year Estimate
28,525 28,196 27,554
23,661 22,854
19,454 17,267 15,757 15,250 14,203 13,280 13,680 11,800
1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2010 2011 Source: U.S. Census Bureau
24 Jennings County Comprehensive Plan Chapter 4 Community Character population estimates for July 2011 suggest that the Country Squire Lakes and Scipio are both considered county’s population experienced a minor decline of Census Designated Places (CDPs) by the Census approximately 300 people. The total state estimated Bureau. According to the 2010 Census, Country Squire population of Indiana in 2011 was 6,516,922, meaning Lakes has the second highest population in the county that Jennings County consisted of approximately 0.43 with 3,571 people. There are 521 people in Hayden, percent of total statewide population. 282 in Butlerville, and 153 in Scipio.
Figure 4.2 illustrates the population projections by Jennings County’s population is less ethnically diverse year for Jennings County from 2010 through 2050. The than the state as a whole. According to 2011 estimates projections are based on the 2010 census population from the Census Bureau, 97.6 percent of the county’s figure. The county is expected to experience steady population identified as White; this is lower than the population growth through 2030. Growth is then state’s percent distribution (86.8 percent). In Jennings projected to level out as the population ages. County, 2.2 percent identified as Hispanic or Latino origin (can be of any race). Larger population centers Table 4.2 shows population trends over the past fifty such as Country Squires Lakes and North Vernon have years for Jennings County, incorporated places, and more ethnically diverse populations. For instance, only townships. Most of the county’s townships experienced 93 percent of people in Country Squire Lakes identify modest population growth, Campbell Township being as White; 3.3 percent are some other race and 2.2 the only exception. percent are two or more races.
Geneva Township at the northwest corner of the According to the most recent census, the male county experienced the greatest population growth population in Jennings County is 14,288 (50.1 percent) since 1970. Two unincorporated communities in that and the female population is 14,237 (49.9 percent). township likely contributed to that area’s growth.
FIGURE 4.2: Population Projections by Year
30,449 30,364 30,235 30,308 30,099 29,832
29,415
28,954
28,525
2010 2015 2020 2025 2030 2035 2040 2045 2050 Source: STATS Indiana
Prepared by SDG & HWC Engineering 25 Figure 4.3:
Table 4.2. Jennings County Population Trends by Township and Place Net 1970 1980 1990 2000 2010 % Change Change Bigger township 504 574 611 688 726 222 44% Campbell township 2,653 2,164 1,790 1,588 1,191 -1,462 -55% Center township 6,844 7,806 7,800 8,593 8,894 2,050 30% Columbia township 737 774 813 759 868 131 18% Geneva township 2,640 3,849 5,040 7,469 7,584 4,944 187% Lovett township 733 809 768 982 1,160 427 58% Marion township 802 984 972 1,058 1,117 315 39% Montgomery township 749 941 896 983 978 229 31% Sand Creek township 752 803 714 818 872 120 16% Spencer township 1,570 2,093 1,980 2,073 2,326 756 48% Vernon township 1,470 2,057 2,277 2,543 2,809 1,339 91% North Vernon city 4,582 5,768 5,311 6,515 6,728 2,146 47% Vernon town 440 329 370 330 318 -122 -28% Jennings County 19,454 22,854 23,661 27,554 28,525 9,071 47% Source: STATS Indiana; U.S. Census Bureau
26 Jennings County Comprehensive Plan Chapter 4 Community Character Age FIGURE 4.4: Age Distribution (2011 Estimates) Figure 4.4 shows age distribution estimates for both 28.1%
26.7% Jennings County and Indiana in 2011. Jennings 25.6% 24.7% County’s age distribution differs slightly from the state
19.3% average. For the age group of 45 and older, Jennings 17.9% County is shown to have a higher percentage than the 13.2% 13.1% state average. For the ages 44 and under, Jennings 10.1% 8.4% 6.6% 6.4% County’s percentage is below the state average. Figure 4.5 shows the median projected age for Jennings County. The age gap for Jennings County and Indiana 0 to 4 5 to 17 18 to 24 25 to 44 45 to 64 65+ is projected to increase over the next 10 years, and then reduces slightly between 2025 and 2035, before Jennings County Indiana continuing to increase after 2035. The conclusion to Source: U.S. Census Bureau; Indiana Business Research Center be derived from this data is that Jennings County has an aging population and is not attracting new younger FIGURE 4.5: Median Projected Age 40.5 (age 25 to 44) citizens at the same pace as the state. 40.1 40.3 40.1 39.6 39.8 39.6 39.5 Educational Attainment 38.4 39.1 39.1 39.1 39.1 Figure 4.6 shows the recent school enrollment for 38.8 38.5 Jennings County Schools. The total enrollment record, 38.1 37.5 beginning in the 2006-07 school year, has experienced 37.0 declining enrollment levels. The data show a peak enrollment of 5,289 students within the Jennings
2010 2015 2020 2025 2030 2035 2040 2045 2050 County Schools in 2006-07. Enrollment levels really began to decline after the 2007-08 school year. By Jennings County Indiana the 2010-11 school year, total enrollment was down
Source: U.S. Census Bureau; STATS Indiana to 5,005. This represents a 5.4 percent decrease between the 2006-07 and 2010-11 school years. FIGURE 4.6: Jennings County Schools Declining enrollment is troubling but not alarming. More students may simply be attending charter 5,289 5,286 schools which are not subject to the same reporting 5,195 requirements as public schools. 5,119 Figure 4.7 illustrates the educational attainment from
5,005 2000 to 2010 for both Jennings County and Indiana. Jennings County is slightly lower when compared to Indiana as a whole in attaining a high school degree and significantly lower when compared to Indiana in attaining a bachelor’s degree. Jennings County 2006-07 2007-08 2008-09 2009-10 2010-11 narrowed the gap with the state average in high Total Enrollment school graduates from 2000 to 2010. Out of the 92 Source: Indiana Department of Education
Prepared by SDG & HWC Engineering 27 counties in Indiana, Jennings County ranked 78th in FIGURE 4.7: Educational Attainment for the percentage of those with a high school diploma Population 25+ in 2010. Jennings County has lost ground in terms of 82.1% 86.2% 76.2% 81.3% adults with college degrees or higher. The county is well below the state average and ranks in last place (92nd out of 92 counties) in terms of adults with a B.A.
19.4% 22.4% or higher degree. 8.4% 7.5% Figures 4.8 and 4.9 illustrate detailed educational Jennings Indiana Jennings Indiana attainment levels in 2000 and 2010 for Jennings County County County and Indiana. Figure 4.8 shows that the adult % High School Graduate or % Bachelor's Degree or Higher Higher population in Jennings County has made strides in attending some college with no degree and achieving 2000 2006-2010 ACS associates degrees. In contrast, the percent of adults Source: STATS Indiana with bachelor’s degree and graduate or professional
FIGURE 4.8: Jennings County Educational degrees declined somewhat between 2000 and 2010. Attainment for Adults 25 years and Figure 4.9 illustrates that a higher percent of the state’s over population has achieved some college or higher. 46.9% 46.9% The percentage of adults 18 to 24 years in Jennings County enrolled in college or graduate school nearly 20.6% 16.4% 15.5% 12.9% doubled from 12 percent in 2000 to 23 percent, 8.3% 6.4% 5.9% 5.8% 5.3% 4.4% 2.5% 2.2% according to the 2008-2010 estimates. However, these percentages were both well below the state average school enrollment. The census does not currently show the percent of adults enrolled in associates degrees, two-year, or other certifications.
2000 2006-2010 ACS The increase in associates degrees between 2000 and Source: U.S. Census Bureau; STATS Indiana 2010 in Jennings County (see Figure 4.8) suggests that the demand for this type of degree or certification is in FIGURE 4.9: Indiana Educational demand by area employers. Attainment for Adults 25 years and over FIGURE 4.10: Enrolled in College or 37.2% 36.2% Graduate School: Population 18 to 24 Years 20.3% 19.7% 14.3% 12.6% 12.2% 9.5% 8.1% 7.3% 7.2% 5.8% 5.3% 4.3% 41.8% 34.3% 23.0% 12.3%
Jennings County Indiana
2000 2006-2010 ACS 2000 2008-2010 ACS Source: U.S. Census Bureau; STATS Indiana Source: U.S. Census Bureau
28 Jennings County Comprehensive Plan Chapter 4 Community Character Poverty FIGURE 4.11: Poverty Rates
The poverty rate tracks the percentage of individuals 14.2% who are below the poverty threshold. Poverty 13.5% thresholds are the dollar amounts used to determine poverty status, and vary according to the size and 9.2% 9.5% age of family members. The same thresholds are used throughout the United States and do not vary geographically. Figure 4.11 shows the poverty rates in 2000 and 2010 for Indiana and Jennings County. Jennings County has followed state trends but has remained slightly lower than Indiana’s overall poverty Jennings County Indiana rate. 2000 2008-2010 ACS The percent of free lunches served is another indicator Source: U.S. Census Bureau of economic distress. As shown in Figure 4.12, the percent of free lunches for Jennings County Schools, at FIGURE 4.12: Percent Free and Reduced nearly 44 percent, was higher than the state average. Lunch (SY 2010-11) The percent of reduced lunches for Jennings County 43.6% Schools is nearly twice that of the percent of reduced 39.0% lunches for the state of Indiana. Income 13.2% Income is generally the aggregate of wages and 7.8% salaries, net farm and non-farm self-employment income, interest, dividends, net rental and royalty Jennings County Schools Indiana (All Public Schools) income, Social Security and railroad retirement income, other retirement and disability income, public Free meals Reduced price meals assistance income, unemployment compensation, Source: Indiana Department of Education Veterans Administration payments, alimony and child support, military family allotments, net winnings from gambling, and other periodic income. The median divides the income distribution into two equal parts, When inflation is taken into account, a different one having incomes above the median and the other picture of income levels emerges. Table 4.4 shows having incomes below the median. For households median household incomes that have been adjusted and families, the median income is based on the for inflation in 2010 dollars. Median household income distribution of the total number of units, including levels peaked in 1999 and declined. Income levels in those with no income. North Vernon, Vernon and Jennings County followed state trends but remained below the state average. As indicated in Table 4.3, it appears that income levels have risen drastically since 1979 in North Vernon, As shown in Figure 4.13, incomes have fluctuated in Jennings County, and Indiana. These income figures North Vernon, Vernon, Jennings County and Indiana. come from the decennial census and have not been However, the recent trend has been one of declining adjusted for inflation. income levels.
Prepared by SDG & HWC Engineering 29 FIGURE 4.13: Inflation-Adjusted Median Household Income
$60,000 $55,000 $50,000 $45,000 $40,000 $35,000 $30,000 $25,000 $20,000 1979 1989 1999 2010
North Vernon city Vernon town
Source: STATS Indiana, U.S. Census Bureau; American Community Surveys 2006-2010 5-Year Estimates; 1980 Census does not show 1979 income data for places of less than 2,500 people; Vernon had a population of 329
Table 4.3 Median Household Income (Not Adjusted) 1979 1989 1999 2010 % Change North Vernon city $ 13,385 $ 20,912 $ 34,244 $ 36,830 175% Vernon town NA $ 22,000 $ 29,750 $ 36,250 65%* Jennings County $ 15,951 $ 24,617 $ 39,402 $ 43,755 174% Indiana $ 17,582 $ 28,797 $ 41,567 $ 47,697 171% Source: U.S. Census Bureau * Percent change from 1989 to 2010; 1980 Census does not show income data for places of less than 2,500 people
Table 4.4 Median Household Income (Inflation-Adjusted for 2010 dollars) 1979 1989 1999 2010 % Change North Vernon city $ 40,202 $ 36,774 $ 44,821 $ 36,830 -8% Vernon town NA $ 38,687 $ 38,939 $ 36,250 -6%* Jennings County $ 27,909 $ 43,289 $ 51,572 $ 43,755 -9% Indiana $ 52,808 $ 50,640 $ 54,405 $ 47,697 -10% Source: U.S. Census Bureau; BLS CPI Inflation Calculator * Percent change from 1989 to 2010; 1980 Census does not show income data for places of less than 2,500 people
30 Jennings County Comprehensive Plan Chapter 4 Community Character Employment
Figure 4.14 depicts changes in employment by industry in Jennings County between 2000 and 2010. Jennings County’s largest industries were (1) manufacturing, (2) educational, health, and social services, and (3) retail trade. Jennings County’s employment by industry is consistent with the state average in many employment categories, however, manufacturing employment in Jennings County is 9 percentage points higher than the state average. Figure 4.15 shows changes in employment by industry for Indiana during the same time period.
FIGURE 4.14: Percent Employment by Industry in Jennings County 35.3%
2000 2010 28.0% 19.2% 18.5% 13.2% 12.8% 8.9% 7.2% 6.8% 5.5% 5.1% 4.6% 4.5% 3.6% 3.5% 2.8% 2.6% 2.4% 2.4% 2.3% 2.3% 2.2% 2.2% 2.0% 1.0% 0.8%
Source: U.S. Census Bureau; 2006-2010 American Community Survey 5-Year Estimates
FIGURE 4.15: Percent Employment by Industry in Indiana 22.9%
2000 2010 22.0% 19.3% 19.0% 11.8% 11.3% 8.7% 7.5% 7.3% 6.6% 6.4% 6.3% 5.7% 5.6% 5.3% 5.2% 4.7% 4.7% 3.4% 3.4% 3.3% 2.9% 2.1% 1.8% 1.4% 1.4%
Source: U.S. Census Bureau; 2006-2010 American Community Survey 5-Year Estimates
Prepared by SDG & HWC Engineering 31 Recent industry data is also available at the county level from the U.S. Bureau of Economic Analysis. Table 4.5 shows the percent distribution of employment and average earnings for Jennings County and Indiana. Jennings County has a higher percent of manufacturing jobs than in the state as a whole. The average earnings per job are higher in nearly every industry for Indiana when compared to those in Jennings County, which correlates with the median household incomes from Figure 4.13. Jennings County has a higher average than the state of Indiana for the percent of residents employed in the farm, construction, manufacturing, transportation and warehousing, and government industries.
Table 4.5 Employment and Earnings by Industry 2010 (NAICS) Pct. Dist. in Pct. Dist. Average Earnings per Average Earnings per Industry Jennings in Indiana Job (Indiana) Job (Jennings County) County Farm (place of work) 1.9% 6.3% $30,423 $22,453 Nonfarm (place of work) 98.1% 93.7% $44,897 $38,364 Private 85.1% 79.9% $43,529 $36,379 Accommodation, Food Serv. 7.0% 3.8% $17,809 $14,047 Arts, Ent., Recreation 2.0% 0.8% $25,834 $6,500 Construction 5.2% 10.4% $50,727 $45,658 Health Care, Social Serv. 11.2% D $50,340 D Information 1.2% D $52,801 D Manufacturing 13.1% 16.6% $68,185 $52,715 Professional, Tech. Serv. 4.4% 1.8% $56,432 $32,809 Retail Trade 10.6% 9.5% $26,609 $21,292 Trans., Warehousing 3.9% 11.7% $47,592 $37,301 Wholesale Trade 3.5% 2.4% $63,698 $38,060 Other Private (not above) 23.1% 7.7%* $34,885 $34,931* Government 12.9% 13.8% $53,895 $49,809 * These totals do not include county data that are not available due to BEA non-disclosure requirements D = not shown to avoid disclosure of confidential information Source: U.S. Bureau of Economic Analysis
32 Jennings County Comprehensive Plan Chapter 4 Community Character Commuting and those leaving recently experienced a decrease. Commuting levels remained largely unchanged County workers are classified into two groups when between 2000 and 2008, but the number of people discussing commuting trends: the work force and leaving Jennings County for work elsewhere noticeably the resident labor force. The Jennings County work declined in 2010. This change may be due to any force is defined as the number of people who work number of factors. The economic downturn that began in Jennings County regardless of residence – meaning in 2008 forced many workers out of the labor force. that they live either in Jennings County or elsewhere. The decline in commuters leaving Jennings County The Jennings County resident labor force is the number may reflect this trend. Jennings County’s resident labor of people who live in Jennings County and work in force declined from 18,471 in 2008 to 17,530 in 2010. the county or elsewhere. If the size of the work force The type of jobs available in Jennings County and the exceeds the size of the resident labor force, a county pay associated with those jobs may play a factor in the is a net importer of workers. Otherwise, the county is commuting trends for county residents. a net exporter. Jennings County receives most of its workers from Figure 4.16 shows that Jennings County is a net Jackson, Jefferson, Bartholomew, Decatur, and Ripley exporter of workers because the number of people Counties. 2,259 residents commute out of Jennings who commute into the county to work is less than the County predominately commute to Bartholomew number of people who live in Jennings County but are County, and another 1,341 commute to Jackson employed elsewhere. County from Jennings County.
Although Jennings County is a net exporter of workers, the gap between those entering the county for work
FIGURE 4.16: Commuting Trends 6,000
5,000 5,353 5,481 5,432 5,348 5,404 4,000 4,780
3,000 1,659 1,667 1,657 1,655 2,000 1,610 1,572
1,000
0 2000 2002 2004 2006 2008 2010
# of people who live in Jennings County but work outside the county
# of people who live in another county (or state) but work in Jennings County
Source: Indiana Department of Revenue, STATS Indiana
Prepared by SDG & HWC Engineering 33 Housing FIGURE 4.17: Occupied Housing Units In 2010, Jennings County had 12,069 housing units Tenure (2010) with an occupancy rate of 88.5 percent. This rate 77.0% 76.7% was 1 percentage point lower than the state’s overall 69.9% 64.9% occupancy rate of 89.5 percent. For that same year, 56.8% 43.2% the vacancy rate in Jennings County was 11.5 percent. 35.1% 30.1% Among the county’s occupied housing units, 77 23.0% 23.3% percent were owner occupied and 23 percent were renter occupied. This differs from the state’s occupied Country North Vernon Jennings Indiana housing which had 70 percent owner occupied in 2010. Squire Vernon town County Lakes CDP city As shown in Figure 4.17, North Vernon has a higher Owner Occupied Renter Occupied percentage of rental housing units than Jennings County overall and the state. Source: U.S. Census Bureau
FIGURE 4.18: Percent Vacant Housing Units Figure 4.18 shows that Country Squire Lakes CDP has (2010) noticeably higher percent of vacant housing units than 26.4% North Vernon and Jennings County as a whole, and the Town of Vernon had the second highest percent 19.8% of vacant units. However, Vernon has a total of 167 11.5% 10.5% housing units according to the most recent census, and 9.9% 33 vacant units. In comparison, there are 469 vacant housing units in Country Squire Lakes CDP. Country North Vernon Jennings Indiana As shown in Figure 4.19, median home values in Squire Vernon town County Jennings County are lower than in the state overall, Lakes CDP city and median home values are significantly lower in the Percent Vacant Housing Units
Country Squire Lakes CDP area. Source: U.S. Census Bureau
FIGURE 4.19: Median Home Value for Owner Occupied Units (2006-2010 ACS) $123,000
$87,100 $95,000 $92,200
$39,300
Country North Vernon Jennings Indiana Squire Vernon town County Lakes CDP city
Median Home Value
Source: U.S. Census Bureau; 2006-2010 American Community Survey 5-Year Estimates
34 Jennings County Comprehensive Plan Chapter 4 Community Character
When adjusted for inflation in 2010 dollars, median Building permits are another indicator of growth in home values in Jennings County, North Vernon, and communities. As Figure 4.21 shows, Jennings County Vernon declined between 2000 and 2010. This period has slowed significantly in issuing building permits saw an 11 percent decrease in median home values, since 2005. There was a 72 percent decrease in falling behind the state which saw home values building permits between 2005 and 2010. However, increase a modest 3 percent. after reaching a low point in 2010 residential building permits began to show signs of rebounding in 2011.
FIGURE 4.20: Change in Median Home FIGURE 4.21: Jennings County Residential Values for Owner Occupied Units Building Permits (Adjusted for Inflation) 208 195 $123,000 $119,412 $103,710 $102,950 $95,000 $92,200 $91,933 132 134 132 132 $87,100 110 86 57 45 37 44
North Vernon Vernon town Jennings Indiana city County Source: U.S. Census Bureau 2000 2010
Source: U.S. Census Bureau; 2006-2010 American Community Survey 5-Year Estimates *Adjusted for inflation to year 2010 dollars
Prepared by SDG & HWC Engineering 35 Critical Sub Area Code Enforcement
Introduction With foreclosed and distressed properties, determining ownership and gaining compliance with enforcement Unsafe or woefully derelict buildings and homes can orders present special problems. be found in many pockets of Jennings County. And the consequences spread beyond the property For years, there have been complaints about the lack lines. Lack of enforcement has had a noticeable and of local code enforcement needed to address these detrimental effect on the community’s scenic beauty buildings and their effects on the community. The and environment, and can result in a continued decline current economic climate and mortgage foreclosure in the assessed valuation of local property. crisis have presented even greater challenges for the county, with a large number of deteriorating vacant This section will show that Jennings County has made and occupied dwellings. progress on code enforcement with a very limited budget, but that more work is needed. Such dwellings are a blight on neighborhoods, a potential danger to tenants and emergency responders and require significant amounts of government Summary of 2012 Jennings resources. County Code Violations As of October 2012, 157 code complaints were There is a disheartening array of problems tied to reported and closed. Of those complaints, 44 were foreclosed and distressed properties including trash, found not to be actual violations. high grass, security issues, occupied or partially occupied buildings with serious violations such as Complaints about the visual appearance of property no heat or broken water pipes and no common area were the most numerous, with debris/trash problems electricity (leading to non-functioning fire alarms). being reported more than complaints about overgrown vegetation. A majority of these cases were reopened at some time during the year due to property returning to an unsuitable condition.
In a few instances, properties returned to unsuitable condition after new owners/renters acquired property. These types of cases are the majority of cases that are still open for the 2012 year.
About 20 cases investigated in 2012 had properties that were in need of serious repair. From the files it appeared that it was often difficult to locate the proper owners. Of these properties, about one-third of the owners got a demolition permit, one-third cleaned up Home in Jennings County
36 Jennings County Comprehensive Plan Chapter 4 Community Character CSA Code Enforcement the property to livable conditions, and one-third are still unresolved.
Interview with Cheryl Trisler Cheryl Trisler is the Jennings County Area Planning (APC) director who oversees the county’s code enforcement. SDG interviewed her about code enforcement techniques in the county and the problems facing the code enforcement office.
Highlights of the conversation include the limited budget facing the department and how this leads to ineffective enforcement of code violation, the time Home in Jennings County and resources needed for court cases and how fewer exceptions need to be made for permits. This isa »» It is also necessary to first go to court to summary of Cheryl’s concerns and suggestions. get approval for fines which requires extra Main Concerns resources and time
• There are enough serious violations that on • Lots (especially at Country Squire Lakes) are average 10-15 cases could be brought to being sold but the owners are not being held court a month. However, this is difficult due to responsible for the condition of property. limited resources and time; there is extra work involved when lawyers are needed. • There are many large (non-single family) buildings in Jennings County that are not • Usually if the court finds a problem with a meeting code regulations. The APC has not property, the area planning department has been able to get permission to rehabilitate or to initially hire the contractor and hope that demolish these buildings. the owners will pay for the costs in a timely manner. • Individuals and new business owners are constructing new buildings instead of utilizing • On average there are about 50 places a the structures that are already in place. year that need serious repairs or need to be demolished. • Farmers and businesses do not always obtain the necessary permits for buildings and zoning • There is not a tax line item to help improve the regulations. enforcement of code violations.
• Fines are currently not an effective way to Code Enforcement Methods: enforce or gain resources since many home Case Studies owners do not have means to pay fines. There are many different methods of finding and
Prepared by SDG & HWC Engineering 37 Critical Sub Area enforcing code violations. A complaint-driven, reactive • The biggest advantage of this method involves method and a proactive method are the two most the Broken Window Theory. The idea behind popular techniques that cities and counties utilize for this theory is that small problems often lead to identifying local code violations. larger ones. An overgrown lawn could indicate that the owners of the property cannot or The complaint method uses a phone hotline or online will not fix the problems and will allow other database to collect complaints. Community members violations to soon occur. This small problem are allowed to either call in or fill out an online form to will then spread to the entire neighborhood. report nuisances. • It is ideal to stop these small problems before Advantages: larger ones occur. This method sets the standard • This method is used in areas with small for what is acceptable and communicates to populations. the community that violations no matter how small they are will not be tolerated. • Depending on the number of code violations this method can be used in departments with The Ticketing System limited staff and resources. An alternative to the county’s current system is available and is being used by many communities in The proactive method requires code enforcement Indiana - the ticketing system. staff to be out in the community searching for code violations before they are reported. (Some of the Under this system, a zoning violation is identified. following information was found in a report drafted by Typically the planning staff issues a warning ticket first, Frank C. Bracco for the Clayton County Community.) giving the property owner a chance to correct the violation without receiving a fine. If the violation is Advantages: not corrected within the specified time period, then • A proactive method allows for a county/city to a ticket is issued that includes a monetary fine. This target one neighborhood at a time. system can be compared to the ticket system used by the County Sheriff's Department.
Because the current system is so time-intensive, the lack of manpower effectively limits zoning enforcement to a complaint-only basis, meaning someone has to make a formal complaint before the enforcement begins. The ticketing enforcement system takes less time and could result in planning staff being more proactive with enforcement, such as targeting different parts of the county for review or targeting certain uses or cases to follow-up on.
Possible characteristics of the system include:
Home in Jennings County
38 Jennings County Comprehensive Plan Chapter 4 Community Character CSA Code Enforcement
• Ticketing Scales »» Sioux Falls, SD has a two-part program (http://www.siouxfalls.org/code- »» A violationnotice is sent. If violation in not enforcement/nice-keep.aspx) resolved in 30 days, then: ÖÖ Project NICE: City staff and volunteers »» A small ticket of $50 is sent out, home assist an area in cleanup of owner has another 30 days to comply. If neighborhood. problem is not resolved, then: ÖÖ Project KEEP: City staff allow »» Ticket of $150 will be sent out with notice neighborhoods to be more self- that if violation is not corrected within 30 monitoring and encourage days legal action will be taken. neighborhoods to maintain the cleanup efforts. Accountability and Partnerships With limited resources various cities are finding »» Fort Worth, TX created a Code Ranger ways others can help with the enforcement process, program that uses volunteer to find including: violations and encourage better neighborhoods. Each Ranger goes through • Public Accountability a three session training period. Below are the issues discussed at each of the three »» Create a website or newspaper column sessions. that lists offenders. ÖÖ Session 1 (3 hours) • Team with other departments Introduction to the Code Ranger Program »» Once a county makes code enforcement Legal issues a priority it becomes a community wide Vehicle use requirements initiative and requires the commitment Code Enforcement Services overview from many different offices. ÖÖ Session 2 (3 hours) »» Collaborative efforts between departments that deal with safety, economic Code Violations development, community welfare, and Code Ranger Projects code violations are necessary so that Reporting and Data System everyone can report code violations. ÖÖ Session 3 (3 hours) Day 3 »» This initiative does require a uniformed Ride-Along: to be completed within 30 and reliable form of violation reporting. days of Session 2
• Use volunteers (Both examples found in research done for Clayton County-Clayton Enforcement Alternatives Archway Partnership). Examples include: Many departments are dealing with violators that do
Prepared by SDG & HWC Engineering 39 Critical Sub Area not have the means to fix up property and have decided Services Program of the Year from the Indiana Housing on alternative methods for providing assistance before and Community Development Authority. tickets or directly after tickets are issued. These methods include: BBB has torn down more than 100 abandoned homes and does so at a fraction of what it would cost local • Providing detailed information to the government. A combination of volunteers, citizen homeowner on who to contact for home groups, and local governmental support helps make and property repairs, locations of waste and Build a Better Blackford a successful group. Following debris drop offs, and resources of community is an interview with BBB members Jon Creek and Don organizations that provide assistance. Goetz.
• A microloan program to assist home owners in How do you find houses that need to be repairs. demolished? There are two ways that Build a Better Blackford finds »» The City of Tallahassee currently offers these types of homes. First community members may loans to owners of single family homes. call and give information on troubled property and ÖÖ “The goal of the Emergency Home second, through delinquent tax sales. Repair Program (EHRP) is to improve In Blackford County, the commissioner will acquire the living conditions of low-income properties that are not sold at a tax sale and then, if homeowners by removing health and appropriate, transfer the property to the landbank safety hazards and/or architectural of the Blackford Community Commission. The barriers from their homes.” commission then has the power to make deals with ÖÖ This is a proactive way to stop houses individuals interested in the property. BBB at this from depreciating to the point that point can help in finding buyers and by negotiating home owners choose to move out deals with potential property owners by offering free rather than pay for repairs.
• With limited resources many departments partner with nonprofits or groups of volunteers that can provide extra funds and services to families and individuals. The following case state is from Blackford County, Indiana.
Build a Better Blackford Case Study Build A Better Blackford (BBB) is an all-volunteer, not- for-profit group in Blackford County, Ind.
BBB just received the Key Award for Supportive Build a Better Blackford sign
40 Jennings County Comprehensive Plan Chapter 4 Community Character CSA Code Enforcement volunteer labor to those willing to pay for dumpster contractors to give community members affordable costs. This is a great deal for most individuals since options for leveling out a house. the land is usually sold at a discounted price. This all happens with no cost to the tax payer. A two-story home with a basement can cost a property owner close to $9,000 to demolish. With help from Many communities have the ability to transfer property BBB this price can usually be lowered to $3,000. but either do not use this power or do not know they With community conscious contractors a small house have it. with a sturdy frame, without the aid of BBB, can be demolished for $3,500; this can be brought down After these properties are found what is substantially with volunteer power. the next step? BBB does more than demolish buildings, they work What happens to the material acquired behind the scenes building partnerships, finding during demolition? buyers for property, and working with homeowners to In order to keep the costs for the homeowner low, find the best options. They help unravel the problems volunteers sort material to keep as much waste out of that are associated with abandoned buildings. Usually a dumpster as possible. neighbors will want to buy the property but consider the cost of demolishing a home not worth it. BBB will Wood is a major waste item that Build a Better Blackford find these individuals and work with them to finda attempts to keep out of dumpsters. There are limited way they can afford to restore the property. options for the disposal of wood. Currently Build a Better Blackford is looking for other communities that Build a Better Blackford first gives advice on affordable would be interested in sharing the costs of a machine options for expenses such as dumpsters to property that could be used to grind up wood into mulch. owners. Then to help reduce costs, a team of volunteers will demolish a house by hand. Finally, Build a Better In some instances community members want certain Blackford has partnerships with community-conscious material, such as wood from the property. BBB will often allow individuals to take this material if they help with demolition.
Are volunteers trained in house demolition? There are a few volunteers who have worked in the construction industry, but for the most part this has been a learn-as-you-go process.
What happens if owners cannot pay for the removal of material? Build a Better Blackford has a limited amount of funds to help homeowners with demolition costs. The organization has strong partnerships with city Public Health Notice in Connersville mobile home park departments to aid in the development of more funds
Prepared by SDG & HWC Engineering 41 Critical Sub Area and to develop ordinances and policies that can more the resources few, but increased efforts in code efficiently eliminate unwanted structures. enforcement is an investment in Jennings County’s future that offers protection to its tax base. Build a Better Blackford receives donations from local community members and recently has received a Following are some first steps the county can take matching grant from United Way. The City of Hartford, toward beefing up code enforcement. working with Build a Better Blackford, received a $1,500,000 grant through HUD to help improve or Consider – over time – stockpiling a fund that remove unsound structures. would allow the county to pursue legal cases against the most egregious offenders. Contact information on BBB can be found at the Blackford County Economic Development website, Further explore other enforcement systems, such www.blackfordcoedc.org. as ticketing, to see if they would be more effective.
What makes Build A Better Blackford For problem lots, new property owners should successful? first have to obtain permits for land improvements and then, when land meets code regulations, the Teamwork makes Build a Better Blackford a great owners may receive the deed to the land. organization. Majors and officials from Blackford serve on department boards that work closely with Farmers and businesses need to be encouraged to BBB and attend the meetings of BBB. All departments purchase the correct permits. of Blackford understand that to make Blackford better, cooperation has to be established between all parties. Permits can bring in steady revenue.
Often various city departments will lend equipment It would be beneficial if the APC could find an needed to save costs for a property owner. For individual with grant writing experience. example, a dumpster will usually cost $456, but it does not matter how much it weighs when the demolition Example: No vehicle was authorized for code is finished, only how full the dumpster is. The city enforcement. A loan for a vehicle was recently will often lend machines that will help push down approved; however, interest payments have to the debris, cutting down the need for additional come out of current funds. dumpsters. They will also often lend machines that can rip up floors, which saves volunteer lots of time and energy.
Recommendations Put simply, code enforcement will continue to be a problem for the county until more resources – money, education and political willpower – are directed toward the issue.
The challenges of rural governments are many;
42 Jennings County Comprehensive Plan Critical Sub Area Chapter 4 Community Character CSA Town of Vernon Town of Vernon
Key Points Vernon is a jewel with the potential for much greater recognition – and tourism dollars. Its confining • Vernon’s historic character needs to be geography has preserved the town’s historic layout. protected. The town previously had a historic There are also many positive signs of growth, such as preservation ordinance in place in the 1980s the recently approved plans for a new tearoom on the but it was repealed. There have been attempts square. to revive a similar ordinance, but there has been a lack of local support for this type of The town needs more outside dollars, either from ‘restriction’ placed on local building owners. grants or private investment, to keep the revitalization going. To attract those sort of resources, however, the • Vernon needs to expand its local tax base in town must do everything in its power to protect its order to raise funds for improvement projects. assets. There is great opportunity for Vernon to capitalize on ‘historic tourism’ opportunities, including expanded options for small retail, Major Issues and Town food service and local shops. Highlights • One of the most unique aspects of Vernon • Given their limited tax base, the Town of is the historic character of the community. Vernon needs to find innovative ways to fund Vernon is steeped in historic tradition dating their improvement projects, including seeking all the way back to the original platting and funding through available grant funding charter for the town (the Vernon website has programs. some great information on Vernon’s history).
• The Vernon Historic District covers nearly 90 percent of the physical footprint of the town and includes over 116 contributing structures or sites.
• A historic tour map has been developed, in cooperation with Ball State University, to provide visitors with a summary of the historic treasures available in the town.
• Vernon is largely landlocked, and cannot easily expand beyond the current boundaries due to the historic town charter, making future development potential limited. These limitations also create a strain on the potential Home on the outskirts of downtown Vernon
Prepared by SDG & HWC Engineering 43 Town of Vernon Map
0 400 800 Woodlawn Legend V Graphic Scale (Feet) Managed Lands Corporate Limits Violet and Floodplain Louis J Callie Sr. Vernon Historic District
StateSt Nature Preserve Trail 2008 Historic Resources, Parks and Trails Master Plan City of Madison Port Authority RR
Proposed Sidewalks
Railroad Boardwalk - Vernon Commons - Calli Preserve Trail
Tunnel Mill - Park Campground Trail
Vernon - North Vernon Railroad Trail
Twin Cities Raceway Park Vernon Bluffs - Tunnel Mill - Vinegar Mill Trail Type of Zoning CR 25 Agricultural 3 «¬ Commercial ¬7 « Industrial Institutional ManagedCR 40 Land
CR 20 Residential
Ripley St
Gaines St
"The Commons" Brown St First Public Playground in Indiana - 1817 Jackson St One St Perry St
Posey St
Commons St
Montgomery Dr
Water St Washington St CR 75
W Cherokee Ln
State Road 7
Seminole Ln High St
Pike St
South St Apache Trl
CR 25
Vernon
Cemetery State Road 3 «¬7
CR 50 CR 50 CR 60 «¬3
Crosley Fish and Wildlife Area
44 Jennings County Comprehensive Plan Chapter 4 Community Character CSA Town of Vernon
for the town to expand its local tax base, sooner or later someone will want to build making the utilization of existing structures and something that most of the community sees sites for revenue generating uses extremely as inappropriate to the town’s architecture. important.
• The town has focused – and needs to continue to focus on – the development of boutique retail, historic tourism, food service and small commercial types of economic development. This increased tax base from these types of establishments can help offset the lack of tax revenue being generated by a high proportion of institutional use buildings.
• There are also a number of important historic sites within Vernon, such as the railroad bridge and the ‘Commons’ which can be showcased for tourism and recreational purposes.
• Vernon does have a trails plan which provides multi-use connectivity to North Vernon and other important Jennings County locations. They have begun trail construction but progress has been limited to-date due to the need for additional funding.
• Vernon would like to seek grant funding opportunities in the future to help with the implementation of its trails master plan.
Recommendations Vernon should revisit the possibility of requiring some sort of design standards or historic preservation for buildings, at least on the main square.
These regulations do not have to be financially crippling to business owners, they only have to protect the town’s main asset – its historic charm. If these guidelines are not in place beforehand, there is no reason to believe that
Prepared by SDG & HWC Engineering 45 46 Jennings County Comprehensive Plan 5
Land Use 5 Land Use
Key Points
One of the largest factors impacting any new development is the location of available sanitary sewers. Since there is currently only one public wastewater treatment plant in the county, most growth will be centralized around it, in areas surrounding North Vernon.
The U.S. 50 bypass will prompt changes in land use patterns in upcoming years. A detailed plan has been developed with specific land use recommendations along this route. These recommendations can be found in the Critical Sub Area: U.S. 50 East Bypass Impact Area.
Jennings County has done a good job of managing its zoning map to match its future land use map. Few examples of county spot zoning could be identified. As a result, few changes to the future land use map are recommended in this chapter (outside of the area of the U.S. 50 bypass).
Introduction Indiana law requires a comprehensive plan to develop A comprehensive land use plan does not create the land use policies. At their most basic, these policies regulations to reach those goals, but it does make are designed for public health and safety, such as clear what the local priorities are, and also begins the forbidding home construction in flood zones. Other discussion on how to achieve them. plans are considerably more complicated, but most have similar, overarching goals such as to: To develop Jennings County’s land use policies, this chapter takes information about all the goals, ÙÙ Protect existing landowners from new concerns and traditional uses of land gathered during development that might have a negative impact the planning process and shows what they would look on their property. like mapped out over the next 20 years. ÙÙ Direct different types of growth – housing, The chapter begins with an elemental review of historic commercial, industrial, etc. – to areas best suited and existing land use patterns, and then examines for them. how Jennings County’s plans for the future might be Ù Ù Achieve a community goal, such as farmland translated into reality. preservation or environmental protection.
48 Jennings County Comprehensive Plan Chapter 5 Land Use Existing Conditions ÙÙ The number of farms in Jennings County decreased by 8 percent, from 669 to 613 Geological Conditions ÙÙ The land in farms decreased by 3 percent, from 142,609 to 138,331 One of the most significant determinants of Jennings County’s current land use patterns was glaciers. The ÙÙ The average farm size increased by 6 percent, from Illinoian glacier encompassed the southeastern portion 213 acres to 226 acres of the state, including Jennings County, flattening the For comparison, during the same period, Indiana saw land as it went. an increase of about 1 percent in the number of farms, In terms of elevation, the county is fairly uniform, a loss of about 2 percent of its land in farms and a ranging from about 890 feet above sea level at its marginal decrease in the average farm size. highest point in the northeast part of the county to about 530 feet above sea level at its lowest point. Land Use Trends Existing Land Use Patterns in ongoing development for the various types of land use are summarized below. With a land area encompassing 377 square miles and a population density of 75 people per square Agricultural mile, Jennings County is largely a rural, agricultural community. The statewide population density is 182, Although the county’s population growth rate is slow, which means that there are fewer than half as many and the national economic downtown has crippled people per square mile in Jennings County as the state the housing market, there is still some pressure to average. construct residences and subdivisions in agricultural districts. Development is heavily concentrated in the north- central part of the county, in and around North Vernon, This pressure is expected to increase in upcoming years though developed land constitutes only a small as the economy recovers, especially along the S.R. 7 fraction of the overall land area. The county is largely and U.S. 50 corridors. Since protecting the county’s comprised of cropland and deciduous forests, with agricultural sector is an important goal, the county cropland predominating particularly in the south and will need to strengthen current regulations aimed at the west. Pastures, grasslands and evergreen forests farmland preservation, including: make up a smaller portion of the land coverage but ÙÙ The county’s current regulations allow single lots are interspersed more or less uniformly throughout to be subdivided without a lengthy plat approval the county. process. This rule is subject to abuse as it does Since agriculture plays such an important role in not eliminate the ability to subdivide off multiple the local economy and lifestyle, it is important lots from a parent tract over the years. This rule to understand how agricultural land use patterns should be strengthened to limit only one minor have changed over time. The most recent Census of subdivision without going through a formal plat Agriculture indicates that agricultural land coverage approval process. has changed modestly over the past few years. Key ÙÙ While Indiana has “right to farm” legislation in findings from the Census indicate that between 2002 place, there are often points of conflict where and 2007: residences are built in agricultural areas. To protect
Prepared by SDG & HWC Engineering 49 Agricultural Intensity Map Columbus Millhousen Legend 0 8,000 16,000 Managed Lands Cultivated Area (USDA) Graphic Scale (Feet) < 15% Cultivated V Incorporated Areas 15% - 50% Cultivated Unincorporated«¬46 Towns Westport 51% - 75% Cultivated Floodplain > 75% Cultivated North Vernon Bypass Agri-Urban: > 100 Homes per Sq. Mi. Western Route
Elizabethtown Zenas
«¬3 Tannersville Brewersville Scipio
«¬7 Nebraska
Queensville MUTC ¤£50
Butlerville kj
kj Oakdale
GF
GF North Vernon
Hayden GF Vernon
50 ¤£ Grayford San Jacinto Four Corners
Walnut Ridge
Lovett «¬7
Staples Ford Dupont ¦¨§65 «¬3 Commiskey ¤£31
«¬250 Hilltown Paris Crossing Paris
Crothersville
50 Jennings County Comprehensive Plan Chapter 5 Land Use
the rights of farmers, the county should adopt Additionally, a new sanitary sewer is being extended rules requiring new residential units in agricultural from North Vernon to MUTC (near Butlerville) to zoning districts to sign a waiver to reflect their provide sanitary service for the base. In addition to understanding of the agricultural nature of where meeting current demands, the sewer does have the they are building. ability to provide sanitary service to U.S. 50 between ÙÙ While Jennings County recognizes the rights of North Vernon and MUTC – providing the opportunity existing farmers to continue their operations, the for another industrial park in this area. A discussion of county also recognizes that there are hundreds land use recommendations for this corridor is provided of existing rural residences (not associated with in the MUTC Compatible Use Area CSA. farms) throughout the agricultural districts. Commercial Just as existing farming operations should not be impeded by new residences, existing residences While industrial growth has occurred along S.R. 3 in should be protected from new industrial level North Vernon, commercial growth has occurred along agricultural facilities. The county should adopt S.R. 7 in North Vernon. With the construction of the rules to govern where industrial level agricultural bypass, the vision is for commercial growth to continue operations should be allowed in the community. north along S.R. 7. These rules would apply to Confined Animal Feeding Operations (CAFOs), large-scale grain Residential elevators or similar intensity operations. Such rules should identify setbacks from existing residential Projections indicate the county will experience 4-5 areas. percent population growth over the 20-year life of this plan. Industrial Because this growth will likely be split between the Jennings County has had significant success recruiting incorporated and rural areas of the county, it does not and retaining high quality businesses. Most growth represent a significant development in any one area. has been located along S.R. 3 on the north side of Accordingly, the focus of the community needs to North Vernon in the county’s industrial park. be on improving the quality of its existing residential neighborhoods. As the sites in the current industrial park fill up, the county will need to identify additional lands for Still, the bypass will change residential patterns in the growth. In the North Vernon Comprehensive Plan, the county and those changes must be accommodated. city identified lands just north of existing sites as the Specific recommendations for residential areas follow: target for industrial expansion. ÙÙ There are significant lands in the county already As North Vernon’s plan works well with the selected zoned for residential development. These are western route of the U.S. 50 bypass and existing land located along state highways and adjacent use patterns, the Jennings County plan will endorse to existing incorporated and unincorporated and support that vision. However, the exact location communities. New residential development has changed somewhat from the North Vernon plan should be encouraged in these areas prior to as the bypass route has been modified since that plan rezoning of new land for residential growth. was adopted in 2009. More information can be found ÙÙ New subdivisions should be directed where they in the U.S. 50 East Bypass Impact Area CSA. can be served by sanitary sewer systems. This
Prepared by SDG & HWC Engineering 51 Existing Land Use Map Columbus Millhousen Legend 0 8,000 16,000 Managed Lands (IDNR) Type of Land Use Non-Conforming Use Agricultural V Graphic Scale (Feet) Unincorporated Towns PUD Airport North Vernon Bypass (Western Route) Residential «¬46 Commercial Westport River or Stream Special Use Industrial E 1200 N Institutional
N N 800E
E 1000 N Elizabethtown W 1400 S
N N 600E Zenas
200 W 200
N 400 W 400 N N 400E N N E 200 N E 800 N W 800 N
Tannersville N 600 W 600 N «¬3 Brewersville
S 600 E 600 S Scipio E 600 N W 600 N W 600 N
S 600 E 600 S Nebraska
«¬7 Queensville MUTC ¤£50 N.V. E 400 N N 800E W 400 N Airport Butlerville
Oakdale N 600 W 600 N W 200 N E 200 N
W 200 N
N 400 W 400 N N E 400 N
N800 W North Vernon N 600N E Hayden Vernon ¤£50
Grayford S 400 E 400 S
San Jacinto E 800 S W 200 S Four Corners
«¬7 E 400 S W 400 S E 400 S Walnut Ridge
W 1200 N
Lovett S 200 W 200 S
W 600 S E 600 S S 400 W 400 S Staples Ford S600 W Dupont
S 200 E 200 S W 1000 N ¨¦§65 E 800 S W 800 S Commiskey ¤£31
S 400 W 400 S «¬3 S 800 W 800 S
Hilltown W 200 S
Paris Crossing 250 Paris «¬
1200 S
Crothersville
52 Jennings County Comprehensive Plan Chapter 5 Land Use
means subdivision growth will need to occur in units, clean up plans for vacant lots, stricter the area of the county on the perimeter of North regulation of manufactured homes and other Vernon. similar initiatives. ÙÙ New residential growth areas will open up asa result of the bypass – especially to the west of Existing Zoning Map North Vernon nearest to the schools. Growth The Jennings County Existing Land Use Map on page should be encouraged in these areas, as outlined 52 depicts the current zoning classification for all in the U.S. 50 East Bypass Impact Area CSA. parcels within the county. Only existing land uses for Ù Ù Development pressures can be expected along unincorporated areas of the county and for the Town U.S. 50 between I-65 and North Vernon, and along of Vernon are depicted on the Jennings County map, S.R. 7 between Columbus and North Vernon. For thus avoiding any potential conflict with change in use the U.S. 50 corridor, development should first depicted in future North Vernon Comprehensive Plan be encouraged nearest to North Vernon where updates. A detailed description of land uses within the it can be served by existing sanitary sewers. For corporate limits of North Vernon can be found in the the S.R. 7 corridor, development should first be 2009 North Vernon Comprehensive Plan document. encouraged in one of the many undeveloped lots already zoned for residential uses. Only after The dominant zoning classification within the county these areas are developed should new rezonings is currently agricultural, which is depicted in light for residential use be considered. brown on the map. Looking at the map, other clear ÙÙ Established neighborhoods are the foundation of development patterns begin to emerge, including the community. Investment and redevelopment commercial and residential uses along the U.S. 50 of existing neighborhoods will be required to corridor and the S.R. 7 corridor and industrial uses preserve them as an attractive place to live. along the S.R. 3 corridor north of the City of North Vernon. ÙÙ Home based businesses can be unobtrusive. However, there must be limitations on their use Other scattered residential and commercial to protect established neighborhoods and prevent developments are visible on the map but a majority disruption to fellow residents. A business that of the current development is limited to the west and needs signage, employee parking, customer northwest portions of the county. The abundance of parking, deliveries, lighting, storage or similar managed lands within Jennings County, as depicted in requirements should be directed to an appropriate green, is also readily apparent on the map. A summary commercial or industrial district. of the current Jennings County land use categories ins ÙÙ Previous plans have emphasized “affordable” included in Table 5.1 on the following pages. housing as the preferred type of housing for new investment. The county now recognizes that what the community needs is a full range of housing Future Land Use Map choices, including adding higher-end executive Future land use maps draw a lot of attention in a and rental housing. comprehensive plan. They’re eye-opening because ÙÙ Jennings County must work to improve the quality they illustrate – via a map – where community leaders and attractiveness of its affordable housing stock. think homes, businesses, manufacturing plants and Initiatives to implement this goal should include other uses should go in the future. adoption and enforcement of standards for rental
Prepared by SDG & HWC Engineering 53 Existing Zoning Map
Columbus Millhousen Legend 0 8,000 16,000 Managed Lands Industrial Heavy(I-H) Industrial Light(I-L) Unincorporated Towns V Graphic Scale (Feet) Institutional Utilities(INS-UTIL) North Vernon Bypass Institutional(INS) Western Route Non-Conforming Use(NON-CONF) «¬46 Westport Zoning PUD Non-Residential(PDNR) Agriculture(AG) Residential Multi-Family(R-MF) E 1200 N Airport(AZ) Residential Resort(R-R) Commercial Historic Downtown(C-HD) Residential Single Family(R-1F) Commercial Planned Business(C-PB) Residential Two Family(R-2F)
N N 800E Commercial Single Site(C-SS) Special Use(SP-USE)
Commercial(C) E 1000 N Elizabethtown W 1400 S
N N 600E Zenas
200 W 200
N 400 W 400 N N 400E N N E 200 N E 800 N W 800 N Tannersville N 600 W 600 N ¬3 « Brewersville
S 600 E 600 S Scipio E 600 N W 600 N W 600 N S 600 E 600 S «¬7 Nebraska
Queensville MUTC ¤£50 E 400 N N 800E W 400 N Butlerville kj
kj Oakdale N 600 W 600 N W 200 N E 200 N W 200 N GF
N 400 W 400 N GF N E 400 N
N800 W North Vernon N 600N E Hayden GF Vernon
¤£50
Grayford S 400 E 400 S
San Jacinto E 800 S W 200 S Four Corners
«¬7 E 400 S W 400 S E 400 S Walnut Ridge
W 1200 N
Lovett S 200 W 200 S
W 600 S E 600 S S 400 W 400 S Staples Ford S600 W Dupont
S 200 E 200 S W 1000 N ¨¦§65 E 800 S W 800 S
Commiskey S 400 W 400 S
S 800 W 800 S «¬250 Hilltown W 200 S «¬3 Paris Crossing Paris
1200 S
54 Jennings County Comprehensive Plan Chapter 5 Land Use
By extension, they also specify where they shouldn’t industry, heavy industry, open space or transportation go. infrastructure can be located.
The future land use map has this core concept: While the future land use map does not have the power Communities engage in planning to ensure the needs of law, it can lay the groundwork for changes to the of the whole community are considered, not just zoning map and regulations. This section is designed benefits to individuals. to show that the mapping decisions were not arrived at arbitrarily. The steering committee is making these Community planning is based upon the idea of the suggestions only after months of research and debate. public interest. Some flexibility in the use of individual land is given up in exchange for creating a community The Jennings County Future Land Use Map is on page in which the interests of all are considered. When 57. The map is Jennings County’s visual guide to future communities plan, they establish and implement planning. It is a map of what the community wants public policy for decisions on development and to have happen; it is not a prediction. It proposes redevelopment. Plans help a community achieve a where future development – for housing, industrial, character that residents of the community recognize commercial and other uses – should be directed. and support. Development Principles Because a comprehensive plan is not enforceable by law, the future land use map is not the same as a To help understand the committee’s reasoning, the zoning map. Zoning maps, and their accompanying following development principles capture some of the regulations, are enforceable. They specify where core beliefs behind the recommendations. potential uses, such as residential, commercial, light
Table 5.1 Jennings County Land Use Categories Zoning Abbreviation Zoning District Description AG Agricultural R-1F Residential Single Family Detached Single Family Homes R-2F Residential Two Family Duplexes or Doubles R-MF Residential Multiple family More than 2 units R-R Residential Resorts Resort Living C-PB Commercial Planned Business High intensity commercial uses C-SS Commercial Single Site Medium intensity commercial uses C-HD Commercial Historic Downtown Sites within a downtown area C-O Commercial Office Low intensity uses I-L Light Industrial I-H Heavy Industrial INS Institutional Institutional uses INS-UTIL Institutional Utilities Supplementary utility uses PUD Planned Unit Development AZ Airport Zoning FP Floodplain
Prepared by SDG & HWC Engineering 55 Land Use Planning & Enforcement economy. More can be done to enhance the county’s We believe in committing resources for fair and natural features. consistent code enforcement. Money, time and Agricultural Land political will are all needed to ensure that the rules protecting our quality of life are evenly and fairly County regulations need to be updated to balance enforced. the rights of both existing farmers and existing rural residences. Operation of existing farms should not be Reinvestment vs. New Growth limited by new housing development. At the same We favor the revitalization of developed areas time, new industrial level farming (such as CAFOs) over allowing growth and the extension of costly should be located away from existing residences. The infrastructure into new areas. There are long term community should begin a discussion on the location costs in new development that later must be paid by and types of more intensive agricultural practices. local government and taxpayers. Housing North Vernon Jennings County must work to improve the quality and The county will continue working with the City of North attractiveness of its core neighborhoods, in particular Vernon on shared concerns, such as code enforcement its affordable housing stock. County-led initiatives and taking advantage of growth possibilities tied to the toward this goal should include enforcement of U.S. 50 bypass. standards for rental units, clean-up plans for vacant lots and stricter regulation of manufactured homes. Vernon With this work underway, the county will be in a better position to attract investment in higher-rate homes. The Town of Vernon’s historic buildings and its potential for development as a tourism site must be protected U.S. 50 Bypass and promoted. Construction of the U.S. 50 bypass will open up new Economic Development areas of the county for economic development. Jennings County and North Vernon should work closely Economic development and quality of life are together to manage development to the greatest intertwined in Jennings County. There is room here benefit of all. to promote new land for industrial development and other types of economic growth in defined areas while protecting our rural landscapes. Long Term Growth Areas The Future Land Use Map depicts two Long Term Utilities Growth Areas (LTG’s) to help identify the areas with Jennings County should direct development toward the highest potential for future development and the areas that can be served by water and sanitary sewer areas which will likely receive the highest amount of systems. The county should continue to cooperate pressure for future greenfield development. with private and public utilities in future master planning to accommodate this development. A county-wide effort is needed to evaluate the land use potential for each of these LTG’s. This effort Recreation and Greenspace should include an evaluation of the highest and best Greenspace and multi-use trails contribute to a use for portions of each LTG. Factors such as current community’s quality of life, which in turn benefits its and future transportation accessibility, planned utility
56 Jennings County Comprehensive Plan Future Land Use Map
Legend 0 5,500 11,000 Corporate Limits North Vernon Bypass Type of Land Use Western Route Agricultural V Graphic Scale (Feet) Unincorporated Towns Airport Potential Eastern Routes River or Stream Commercial Long-Term Growth Industrial Floodplain Eastern Area Institutional Managed Lands Western Area Non-Conforming Use Millhousen Columbus Airport Compatible Use Area PUD MUTC Compatible Use Area Residential Long Term Res. (Short Term Ag.) Forrest Preservation - Open Space
«¬46 Westport
E 1200 N
N 800E N
E 1000 N W 1400 S Elizabethtown
N 600 E 600 N Zenas
200 W 200
N 400 W 400 N N 400 E 400 N «¬3
E 800 N N 200 E 200 N W 800 N
Tannersville W 600 N
Brewersville S 600 E 600 S Scipio E 600 N W 600 N W 600 N S 600 E 600 S Nebraska «¬7 ¤£50 Queensville MUTC N 800 E 800 N N.V. E 400 N E 400 N
N 800 W 800 N E 400 N W 400 N Airport Butlerville kj
kj N 600 W 600 N Oakdale
E 200 N W 200 N
W 200 N GF N 400 W 400 N
GF N 400 E 400 N
North Vernon
N 800 W N 600 E 600 N
GF Hayden Vernon ¤£50
Grayford S 400 E 400 S San Jacinto E 800 S
W 200 Sx W 200 S Four Corners
E 400 S W 400 S E 400 S Walnut Ridge «¬7 W 1200 N
Lovett
S 200 W 200 S
S 200 W 200 S S 400 W 400 S
S 600 W 600 S E 600 S W 600 S Staples Ford Dupont
¨¦§65 E 200 S W 1000 N
E 800 S W 800 S
Commiskey «¬3
S 800 W 800 S S 400 W 400 S «¬250 «¬250 W 200 S Hilltown
Paris Crossing Paris
1200 S
Jennings County Comprehensive Plan Prepared by SDG & HWC Engineering 57 58 Jennings County Comprehensive Plan Chapter 5 Land Use infrastructure improvements, adjacent land uses and compatible use overlay zones must be evaluated, in detail, in order to determine specific long term land use recommendations for these areas.
There will be pressure on these areas in the future for piecemeal development on an as-needed basis. In order to prevent future potential issues with this type of development pattern it is recommended that a detailed development master plan be completed prior to approval of any development within the Long Term Growth Areas. These plans should provide a detailed framework for specific land use area boundaries within each Long Term Growth Area, planned transportation and utility infrastructure improvements, use-based development design standards and specific parcel development phasing.
Guidelines for Future Decision Making As mentioned, the comprehensive plan does not make a final determination on legally binding ordinances or the zoning map. But the comprehensive plan does list community priorities and identify tools to achieve the plan’s goals.
This section introduces important but unresolved land use issues for Jennings County, and outlines possible decision points. With this foundation, decision makers can determine if further action, such as new regulations, are needed in addition to looking at broader rural zoning and land use issues.
Local leaders can get help in making decisions by recruiting people to form technical advisory groups. These volunteer-driven groups, usually comprised of people with direct experience in the subject, can research best practices and help determine local priorities.
Prepared by SDG & HWC Engineering 59 Future Decisions
For these reasons, state, local and federal authorities Confined Animal regulate CAFOs. These regulations can be very Feeding Operations controversial, with heated arguments emanating from the many sides on the issue.
Background Some argue that the operations produce jobs in rural The National Conference of State Legislatures gives areas that desperately need them, and that they this summary of CAFOs: are simply an extension of traditional agricultural practices. Others argue that CAFOs pollute nearby “The specialization and industrialization of groundwater and drive down the value of neighboring American agriculture during the past several properties. These statements only scratch the surface decades has resulted in an increased number of of the argument. agricultural facilities that house and feed a large number of animals in a confined area. These facilities, knows as concentrated animal feeding Status operations (CAFOs), offer a more efficient Current zoning regulations in Jennings County recognize system to feed and house animals through only one type of zoning district for agricultural usages specialization, increased facility size and close (abbreviated “AG”). The section in the code dealing confinement of animals. specifically with CAFOs requires (1) that CAFOs operate in compliance with Indiana law (IC 13-18-10) and (2) They also pose the problem of increased that there be a 1,000-foot setback from CAFOs and environmental and health problems for residential zoning districts and existing residences in neighboring properties and communities. agricultural districts. Because more waste is generated in CAFOs than other less-dense animal farm facilities, the Next Steps potential for greater air, water and land pollution increases in nearby areas.” The county may want to consider adopting additional zoning ordinances to reduce land use conflicts, to set forth objective criteria to govern agricultural permitting and to streamline the permitting process, and to mitigate environmental and health hazards associated with intensive agricultural operations. The remainder of this section is meant to illustrate several zoning options that the community might consider and should not understood as prescriptive.
A recent report by the Indiana Land Resources Council provides three model ordinances to guide rural Indiana counties seeking to update their agricultural zoning ordinances. These model ordinances are designed specifically to manage growth in agricultural areas strategically and to minimize potential land-use
Cattle confined animal feeding operation 60 Jennings County Comprehensive Plan Chapter 5 Land Use Future Decisions conflicts. The model ordinances (in summary form) Applicants must receive a minimum score on the are: specified criteria to gain approval. Criteria might include: 1. Adopt a multiple-tiered zoning system that includes different zoning designations for different • Separation distance between confinement types and intensities of agriculture. Zoning districts structure and nearest residence, public use could include: area, school, and religious institution • Odor abatement measures taken • A-1 General Agricultural District: Intended for a variety of agricultural uses and includes the • Manure handling practices following development standards: maximum • Presence or absence of a truck turnaround lot size of one to two acres, density limitation area of one dwelling unit per twenty acres, a • Inclusion of livestock feeding and watering minimum yard setback of 50 to 60 feet, a systems that reduce waste maximum structure height of 30 to 50 feet, and • Permit applicant’s environmental violation limitation of new residential use or subdivision record for past five years to special exception. • Inclusion of a closure plan along with the • A-2 Intensive Agricultural District: Pertains construction permit specifically to CAFOs and other intensive agricultural uses and includes the following 3. Adopt a limited use zoning approach in which standards: minimum lot size of 10 to 20 acres, conditions for permitted use in an area are stated CFO and CAFO minimum setback of 750 to within the zoning ordinances themselves, rather 850 feet from residential zoning districts, a than rely on a special exception process for new minimum yard setback of 200 to 300 feet, and operations. The special exception process tends to maximum structure height of 30 to 50 feet, over-rely on subjective factors, leaving applicants and limitation of residential use within zone to with little understanding of what criteria must be special exception. met to receive a permit. Development standards could include: • RE Rural Estate District: Provides for less intensive agricultural uses and allows low- • Applications must come with a site plan density single-family residential uses. Includes that includes scale drawings indicating the following development standards: boundaries of the operation, topography of maximum lot size of one to two acres; the surrounding areas, location of residential minimum lot width of 150 to 250 feet; different buildings, etc. yard setbacks for front, back, and side yards • Compliance with county stormwater and and ranging from 20 to 60 feet; a maximum runoff requirements structure height of 20 to 30 feet; and parking, • Sewage permits landscaping, and signage standards. • A route plan (to be submitted to the highway 2. Implement a site scoring system that lays out pre- department) defined, objective criteria that can be used to guide • Setback requirements the approval process for new livestock operations.
Prepared by SDG & HWC Engineering 61 Future Decisions
• Limitations on waste management systems near floodplains Commercial Design Standards Land Use Questions Unintended consequences to watch for and questions Background to answer include: Redeveloping existing commercial areas and infill development offer many benefits to communities • How much potential remains for siting CAFOs with strained utilities. In most cases, necessary in Jennings County? infrastructure is in place for properties that are • Will there be a negative effect or no effect redeveloped or targeted for infill, ultimately reducing on the quality of surface and ground water in the potential financial burden on local tax payers. Jennings County from existing CAFOs?
• Will rural residential sprawl continue in Status Jennings County and have a negative effect Commercial architectural standards can be as restrictive on the ability of farmers to develop CAFOs on or as flexible as the community wishes. Standards for their property? commercial uses should require buildings to present an attractive image to the community. These standards • How much of an effect will rural residential can also be used to help establish a uniform look that sprawl have on local farmers’ ability to adopt could help further a sense of identity (e.g., common more intensive agricultural practices in the streetscape elements, building materials, etc.). future? The greater the nuisance potential to rural nonfarm residences and property value damages the less likely that these more Next Steps intensive agricultural uses will be permitted in Implementing commercial design standards into the the future. county’s zoning ordinance can ensure a minimum design standard for new construction. These standards can also apply to redeveloped or expanded properties.
CVS using design standards, Nashville, IN Typical CVS design with little input from the community
62 Jennings County Comprehensive Plan Chapter 5 Land Use Future Decisions
Table 5.2 Commercial Design Standards Tools that Require Tools that Require Little Tools that Require More Considerable Political Will & Resources Political Will & Resources Political Will & Resources Continue to allow building to be placed and oriented in any Amend the zoning ordinance to Amend the zoning ordinance location on the site, as long as prohibit a commercial building to require development plan Building Orientation no other provisions of the zoning from “turning its back” to the approval by the plan commission ordinance are violated (i.e., main thoroughfare. for all commercial buildings. setbacks). Amend the zoning ordinance Amend the zoning ordinance Continue to allow parking to be to limit the amount of parking to prohibit parking in front of placed in any location on the site, that can be placed in front of the a commercial building, so that Parking Location as long as no other provisions of commercial building, in effect resulting parking is on side and the zoning ordinance are violated pulling the building closer to the rear, opening up the commercial (i.e., sight distance). road. building to the road. Amend the zoning ordinance to include a section on exterior Amend the zoning ordinance to building materials that lists Amend the zoning ordinance to create an architectural review acceptable materials and gives Exterior Building prohibit certain exterior building committee to approve exterior the developer guidelines for Materials materials (i.e., concrete block building material selection using them (i.e., each wall and prefabricated steel panels) for each commercial building must have at least 2 different elevation. materials, or 80% of the front elevation must be masonry). Amend the zoning ordinance to Amend the zoning ordinance to Follow existing zoning ordinance create a sign review committee Signs include unique sign regulations commercial sign regulations. to approve each commercial sign for main thoroughfare. plan and design. Amend the zoning ordinance to include a section on landscape Amend the zoning ordinance to standards for the corridor Rely on existing zoning ordinance require the same landscaping that sets minimum standards Landscaping landscape standards as only for every commercial site on the for things like buffers and guide. main thoroughfare, resulting in a lists multiple options for the uniform look. developer of each site to choose from. Amend the zoning ordinance to include a section on architectural Amend the zoning ordinance to Rely on existing zoning ordinance standards that sets minimum create an architectural review Building Design developmental standards (i.e., standards and lists multiple committee to approve each maximum height) as only guide. options for the developer to commercial building design. choose from.
Amend the zoning ordinance Amend the zoning ordinance to to require this be considered Rely on existing zoning ordinance prohibit this where visible from as part of development plan Trash & Recycling developmental standards as only the road, in addition to requiring approval by the plan commission guide. screening. Require mandatory for all commercial buildings in curbside recycling. the main thoroughfare.
Prepared by SDG & HWC Engineering 63 Future Decisions
The following table lists different components of If, however, there is concern that new industrial commercial design standards and their typical development would be close enough to existing, implementation tools, indicating the difficulty in competing uses such as neighborhoods, then a establishing each of the tools in most communities. It community might want to explore ways to lessen the is intended to provide the county with options if they impact of the new buildings. decide to pursue additional regulations for commercial development. Local leaders might also want to install some design standards in order to improve the overall appearance of Industrial Design an industrial area to attract higher-end manufacturers. The following table is not meant as a set of specific Standards recommendations for Jennings County. Instead, it is The following table lists different components of design intended as a starting point for discussion about what and planning standards for industrial development. If types of standards some communities regulate. there are large tracts of undeveloped land available for industrial growth – and they are well removed from competing land uses such as housing - then detailed design standards are probably less important than functional standards (roads wide enough for trucks to turn, etc.).
Table 5.3 Industrial Design Standards Establish both a minimum and a maximum setback, so that parking lots do not dominate the view Setbacks of the area. Provide for minimum 25% or greater open space.
Valuable natural resources or features, such as floodplain, karst topography, riverbanks and steep Open / Green Space slopes shall be preserved and maintained.
Open / Green space must contain usable open space and exclude such things as detention ponds, narrow strips of land and other undesirable and difficult to maintain areas. Create a buffer between industrial development and competing land uses by requiring a mix of Buffers street trees, shrubs and native plantings. At least 100 foot buffer is recommended. Require a landscape plan. Define areas to be landscaped, such as parking lot, open space and foundation plantings.
Landscaping Define plant types desired in corridor, such as native vegetation and define minimum plant size at installation, such as a 2.5-inch caliper tree or 24-inch shrub height.
Define standards for preservation of existing trees, especially within buffer areas. Provide for parking lot access between adjacent parcels.
Parking Requirements Parking lots shall be located in rear or side of buildings, not in buffer between buildings and competing land uses. Refuse Storage All refuse areas shall be screened and enclosed.
64 Jennings County Comprehensive Plan Chapter 5 Land Use Future Decisions
The following table lists different components Residential Design of residential design standards and their typical Standards implementation tools, indicating the difficulty in establishing each of the tools in most communities. Local leaders might also want to use some residential design standards in order to improve the overall These are not specific recommendations for Jennings appearance of new neighborhoods. Design standards County. Rather, these standards can be used to guide can help determine the character of a neighborhood. discussion about how the county might be able to regulate issues with future residential development.
Table 5.4 Residential Design Standards Tools that Require Tools that Require Little Tools that Require More Considerable Political Will & Resources Political Will & Resources Political Will & Resources Amend the zoning ordinance Prohibit the use of certain Amend the zoning ordinance to require that exterior exterior building materials to include a section on exterior building materials meet (i.e., vinyl siding). building materials that lists Exterior Building Materials quality standards (i.e., vinyl required materials (i.e., each siding minimum width and wall must be 80% masonry). installation standards). Rely on existing zoning Amend the subdivision Amend the subdivision ordinance landscape standards ordinance to require that ordinance to require as only guide. at least one street tree be the developer to get a planted on each residential landscape plan for the entire Landscaping lot. subdivision approved by the plan commission and post a financial guarantee to ensure that the landscaping is installed. Continue to Rely on Amend the zoning ordinance Amend the zoning ordinance existing zoning ordinance to include Anti-Monotony to include a full set of developmental standards Provisions (i.e., limit the architectural design standards Architectural Design (i.e., maximum height) as only number of times the same (i.e., allowable window and guide. house design may be used roof styles, etc.). within the subdivision). Continue to allow attached Amend the zoning ordinance Amend the zoning ordinance and detached garages to be to allow attached front loading to prohibit front- loading placed in any location on garages only if the impact garages. Garage Placement the site, as long as no other is minimized by acceptable provisions of the zoning choice (i.e., garage has a ordinance are violated (i.e., greater front setback than the setbacks). front elevation of the home). Rely on existing zoning Amend the zoning ordinance Require that accessory ordinance developmental to limit the size and placement buildings be architecturally Accessory Buildings standards as only guide. of accessory buildings, in compatible with the house order to minimize their visual (i.e., use same building impact. materials and style).
Prepared by SDG & HWC Engineering 65 Future Decisions Capital Improvement Plan Jennings County does not have a fully integrated Capital Improvement Plan (CIP) which lists the order and timeline for the community’s building priorities.
The CIP allows local leaders to manage the community’s debts. It is easy to imagine what happens without it: The community finishes paying off one big project (such as a new jail), and then immediately begins the argument over tax assessments and how to pay for the next big project. The CIP allows them to minimize individual battles by laying out the order of future work.
Showing a rational process for construction projects can also help a community’s bond rating.
66 Jennings County Comprehensive Plan Chapter 5 Land Use Zoning and Subdivision In general, the state law related changes are as follows: Ordinances Review • Make sure any temporary conditions are Jennings County’s zoning and subdivision ordinances complied with before issuing permits. Old were reviewed by K.K. Gerhart-Fritz, AICP. conditions (pre-2011) may only be enforced if you have an official file on them in your office K.K. is president of The Planning Workshop, which – see IC 36-7-4-1015 (g). specializes in planning‐related education and communication. She is lead presenter for Indiana's • Must offer a “sign-up” sheet for every decision, popular "Nitty Gritty" Plan Commission Training Series so parties can request notice of any future and is an invited plan commission trainer for the lawsuits. There is no more writ of certiorari. American Planning Association's national conference. See IC 36-7-4-1608. This does not necessarily K.K. is author of several chapters of the Indiana have to go in your ordinances; you could Chapter's free online Indiana Citizen Planner's Training amend the rules of procedure or just change Guide. administrative procedures. This would be a good one for their attorney to advise them on. K.K. included this note with her report: “My review • Both the zoning and subdivision ordinances should not be considered a substitute for legal guidance are now required to be available to the public, from their own counsel. Since both ordinances were either as part of the county code or as separate prepared by the same company at the same time documents. They must be filed in the office of (2006), the expectation is that they work well together. the clerk of each participating legislative body, An example of this is that both ordinances use the and there must also be copies available for same set of definitions. I suggest that Jennings County sale. See IC 36-7-4-610. staff could best tell you if the zoning and subdivision • Schedule orientation sessions for board and ordinances do actually work well together or if there commission members per IC 5-14-1.5-2(c)(6). are some points of disagreement.” This doesn’t need to be in ordinance or even in rules, but it needs to be done. In the orientation, Review of Both Ordinances make sure they understand the difference 1. In general, there is a need to make amendments between conditions and commitments, when in order to comply with planning-related state law they should recuse themselves (no longer changes, which went into effect on July 1, 2011. limited to financial conflict of interest; now includes bias or lack of objectivity). Because Indiana State Law was changed, it is • Amend rules of procedure to list residency important that the county’s attorney review and requirement for each citizen member and assist with these ordinance changes. establish a procedure for determining State law now allows Unified Development compliance – see IC 36-7-4-216 and 905. Ordinances, so Jennings County may want to The new law allows appointment of some consider consolidating the Zoning and Subdivision nonresidents. Ordinance into one document if they are doing • State law now allows the combination of updates. hearings for one site (i.e., a variance and a rezoning can be conducted at the same
Prepared by SDG & HWC Engineering 67 hearing by the same group). Set this up in the count and the last day is counted, unless it is a ordinance, because it will save applicants and weekend, holiday or a day the planning office officials time – see IC 36-7-4-403.5. is closed. Their ordinance needs to reflect that.
2. Need to integrate vested rights into both 2. Purpose Statement – the ordinance seems to be ordinances. IC 36-7-4-1015 says that if a person missing the general purposes statement. The files a complete application, the granting ofthe Policy Statement in I. A., Enactments & Provisions permit or approval, and any secondary, additional, doesn’t quite cover it. or related permits or approvals required are 3. Applicability Statement – the ordinance seems to governed for at least three (3) years after the person be missing an applicability statement. applies for the permit by the statutes, ordinances, rules, development standards, and regulations in 4. Interpretation -- I.C. (1), General Provisions, effect when the application is filed. Development Interpretation needs to go into much more detail, per the permit does have to be completed within discussing interpretation of uses, zoning map, ten (10) years after the development or activity is procedures, etc. commenced. 5. Separability – I believe the correct term for I.C. (5), 3. Need to adopt written commitments for use by General Provisions is “Severability.” plan commission and BZA, instead of traditional 6. Temporary Uses – Instead of placing standards conditions (they are easier to track and enforce). for temporary use of tents in II.B. (7), Office of Note that written commitments must now be the Zoning Enforcement Officer, there should be recorded with county recorder, and permanent file an entire Temporary Uses Section in the Zoning on compliance must be kept – see IC 36-7-4-1015 Ordinance. (b). 7. Plan Commission Jurisdiction – Per Indiana Code, Zoning Ordinance the plan commission does not need to send a recommendation to the BZA on special uses, as General observation: The zoning ordinance, adopted outlined in II.D.(2)(a). Suggest that extra step in only six years ago in 2006, seems to be modeled on process be removed. Either allow BZA to decide on older zoning ordinances. It could be refined to further these special uses directly or change ordinance to implement current best practices and to make it more allow the plan commission to approve those uses user-friendly. I recommend a total rewrite of the zoning directly as development plans. Clarify duties of the ordinance, as opposed to a series of amendments. plan commission in this section.
1. Amendments required by 2011 state law: 8. Written Commitments – Section II.F. (7) should be entitled “Written Commitment” not Use • Alternate members are now allowed for both Commitment, in order to match State law language. plan commission and BZA, and may participate Also, 36-7-4-613 has been repealed. Need to cite under different circumstances than in the past. proper section of code. They should seek their attorney’s advice about whether putting this in the ordinance or a rule 9. Development Plan Review – A development plan is necessary. IC 36-7-220. has special meaning under Indiana planning law. • IC 36-7-4-1111 requires that time be computed Are all improvement location permits treated like in a specific way (the day of the act doesn’t development plans (II.G? (1))? In addition to the
68 Jennings County Comprehensive Plan Chapter 5 Land Use
legal description, the address of the parcel should District because of all the conflicts between be required (if it has one). Also, you may want uses, like prohibiting more than a certain to see parking, landscaping, etc. as part of this number of lots be created or requiring them review. Regarding Plat Approval (II.G. (2)), how can to sign a document that they are aware of the you require a new plat if the property has already area being zoned AG. been platted? • The state may have new CFO and CAFO rules. 10. Zoning Certification – Do you actually do this for • Junk automobile regulations should be pulled industrial buildings (II.H.2.)? Wouldn’t State Plan out so they apply to all districts. Review satisfy your concerns? • Mobile home regulations should be pulled out 11. Variances – Your language in II.N. (3) does not so they apply to all districts. match State Code (IC 36-7-4-918.5). You can add • Unnecessary clutter regulations should be criteria, but you can’t leave parts out. Consider pulled out so they apply to all districts. adding “the variance requested is the minimum • Yard Sale regulations should be pulled out so necessary and is not caused by actions of the they apply to all districts. owner, past or present.” 16. Residential oningZ 12. Conditions – The intent of the 2011 State Law change is that conditions be replaced by written • Zoning districts should have their own purpose commitments. Conditions are meant to be statement, instead of referring to issues temporary restrictions, not permanent. documented in the comp plan. • Seems odd to see performance standards 13. Show Cause/Complaints – This (II.O.) seems like in residential, the least likely districts to a really cumbersome way to handle violations. have problems. These standards are hard to Consider moving to ticketing instead. measure and enforce, but if you really want 14. Special Uses – See comments in #8 above. them, pull out so they apply to all districts.
15. Agriculture Zoning • I recommend a second septic site for residential lots; it is becoming a fairly common practice • Most counties in Indiana now have multiple around the state. Agricultural Zoning Districts because AG covers • A one-square-foot sign for a bed & breakfast is such a wide range of uses and intensity. extremely small. • Zoning districts should have their own purpose statement, instead of referring to issues 17. Commercial Zoning documented in the comp plan. • Zoning districts should have their own purpose • How do you keep the new house on non- statement, instead of referring to issues platted subdivided land in the family? It could documented in the comp plan. be sold and the process repeated over and • See comments in #16 regarding performance over until you have a subdivision that lacks standards. proper infrastructure. • Set a maximum lot size and/or maximum • Single-family dwellings are permitted per “B floor area for C-SS to ensure it remains a and C”, but there is no “C”. I would put more neighborhood scale business. limits on allowing residential uses in the A-1
Prepared by SDG & HWC Engineering 69 18. Industrial Zoning • Setting a minimum lot area per “family” is probably not legal. There have been lots of • Zoning districts should have their own purpose court cases related to zoning definitions for statement, instead of referring to issues family. It is good that your ordinance standard documented in the comp plan. is based on a minimum lot area per living unit, 19. Institutional Zoning not family - leave as is. • Many places are now requiring that lots be • How do you measure the 1,000-sq.ft. utility big enough to support two septic fields (one area for exempt utilities? for now and one for the future, when the first 20. PUDs one fails). R-1F has a minimum lot size of 1 acre, which may not always be large enough to • Consider setting some minimum standards support a second septic field. Consider adding (i.e., open space, etc.). this requirement for a second septic field and 21. Flood Districts a note to Table 6-1 that the minimum lot area might need be bigger than one acre in order to • I would recommend the county work directly support a second septic field. with IDNR’s Division of Water to review • Many communities now set maximum lot areas their existing flood district regulations. The – this would work well for the C-HD District, state has a model ordinance they want local to ensure it really is used for downtown governments to follow and the county will neighborhood scale development. want to make sure the county’s standards are up to date. 25. Front Setbacks
22. Signs • I strongly believe that front setbacks should be based on the type of street you front on, not • Are any signs prohibited? How do you treat the zoning district, with smaller setbacks for moving signs? smaller streets and vice versa. 23. Parking Standards – Consider reducing minimum • Note that communities are starting to set number of spaces and setting maximum parking maximum setbacks also. standards in order to limit the amount of • Consider adding an “average” setback impervious surface. provision for non-conforming areas to better 24. Lot Area accommodate redevelopment.
• Seems like there is no lot area for AG; there 26. Landscape Regulations – Need to add more detailed should be some kind of minimum lot size, landscape requirements for buffers, parking lots, probably no more than 40,000 sq. ft. etc. This is becoming a standard practice for many • MF lot size should be at least 3,000 sq. ft. per Indiana communities. living unit or a total minimum lot size of 12,000 sq. ft., whichever is the greatest. The standards Subdivision Ordinance in C. RESIDENTIAL REGULATIONS (3)(a)(1) and General observation: The subdivision ordinance, in Table 6-1 are not clearly connected with each adopted only six years ago in 2006, seems to be other. Consider adding a note on the table. modeled on older subdivision ordinances. It could be refined to further implement current best practices
70 Jennings County Comprehensive Plan Chapter 5 Land Use and to make it more user-friendly. I recommend a different on opposite sides of the street or on an total rewrite of the subdivision ordinance. adjacent parcel. Likewise, sidewalk widths should be standard throughout the community. 1. Article II, Definitions matches the zoning ordinance definitions. While this is good from a coordination 7. Article IV, Section 5 (3), Design Standards, standpoint, many of the definitions in the Easements – This subsection could be clearer. Can subdivision ordinance apply only to zoning and are you just state that this is about access easements? repeated unnecessarily (i.e., “Animal, Domestic”) Also, requiring all easements to be 50’ wide may and could be deleted to shorten this section. be misinterpreted to apply to utility easements, etc. 2. Article III, Section 2 (1), Conditional Approval of Primary Plat – I suggest that the ordinance say that, 8. Article IV, Section 6, Design Standards, Blocks “A sub-divider desiring conditional approval of a – 1600 ft. is excessively long for a cul-de-sac. primary plat …shall submit a complete application Pedestrian ways should be built to sidewalk or trail to the Executive Director.” standards, not just “paved.”
3. Article III, Section 2 (2), Conditional Approval of 9. Article IV, Section 9, Design Standards, Non- Primary Plat – Reconsider having fee schedules Residential Subdivisions – Consider allowing included in an ordinance, because it is too difficult industrial parks to be platted with blocks only. It to do yearly amendments to keep up with inflation. is difficult to know exactly what size lot will be Since this refers to an appendix, it is not clear needed for industrial users. whether the fee schedule is part of the ordinance 10. Article V, Section 4, Required Improvements, or part of the commission’s rules. Sewage Disposal – Consider requiring a second 4. Article III, Section 2 (4), Conditional Approval of septic site on lots using septic. Primary Plat – If the commission disapproves a plat, 11. Article V, Section 9, Required Improvements, Indiana Code requires that they prepare “findings sidewalks – Consider allowing trails to be of fact,” which is what this section describes, but substituted for sidewalks. This would require the proper term should be used. adopting a set of trail standards.
5. Article IV,Section 3, Design Standards, Alleys – The 12. Article VI, Section 2, Plats and data for Conditional alley standards could be updated. Most planned Approval – Use Indiana Code terms of “Primary” commercial and industrial areas no longer use and “Secondary” Plat, not Preliminary and Final alleys for their service areas. It would seem that Plat. the county would prefer that those functions take place on the business property and not in an alley 13. Article VI,ariances V & Modifications -- IC 36- that must be maintained by local government 7-4-702 now officially recognizes that the plan tax dollars. Conversely, discouraging alleys in commission, not the BZA has the authority to grant residential areas would not allow construction of waivers from the standards of the subdivision much desired new urbanist type developments. ordinance. Need to set up procedure for this and list state’s criteria for waivers in subdivision 6. Table 4-1, Street Design Standards – Having ordinance. three different sets of standards for each type of street seems complicated. What happens if the 14. Do you use a technical review committee (reps development density changes over time, or is from Planning, Surveyor, Hwy Engineer, Health, Utilities, Soil & Water, Schools, etc.)? Prepared by SDG & HWC Engineering 71 15. Green Drainage – May not want to push the use of curb and gutter due to drainage, per modern best management practices.
16. Traffic Calming – Most ordinances have sections on this as part of their Design Standards.
17. Electronic Copies – Do you still do everything on paper? Many Indiana communities now require electronic copies. Moving from the Comprehensive Plan to Zoning Ordinances
The comprehensive plan is only the first step in updating Jennings County’s planning. The most common tools used to ensure that the community goals outlined in this plan are reached include:
1. Revising the zoning map.
2. Updating the zoning ode.c
3. Updating the subdivision code.
4. Creating a Capital Improvement Plan.
If these actions are not taken, it is difficult to imagine how the community can move toward its goals. What to Do Next ÙÙ Review Critical Sub Area plans for the county. ÙÙ Consult the Implementation Plan to begin discussions on revisions to the zoning and subdivision ordinances.
72 Jennings County Comprehensive Plan 6
Economic Development 6 Economic Development
Key Points
Manufacturing is still a major driver of the economy in Jennings County, as it accounts for nearly one-fourth of local employment and offers wages that are among the highest on average of any industry in the county.
Industries in which employment is more concentrated than the national average include: advanced materials, technology, chemicals and chemical-based products, forest and wood products, transportation and logistics, primary metal manufacturing, fabricated metal product manufacturing, machinery manufacturing, transportation equipment manufacturing.
Jennings County is a net exporter of labor, with approximately three times as many residents commuting outside the county for work as commute into it from other counties. The majority of these commuters work in either Bartholomew or Jackson counties.
While nearly 23 percent of Indiana residents have a Bachelor’s degree or higher, only 9 percent of Jennings County residents have that level of educational attainment.
The likely eastern route of the U.S. 50 bypass will cut through two of the community’s industrial parks, which will leave it with less acreage, including on a state certified shovel-ready site. As an investment in the future, new land should be dedicated to industrial development.
Existing Conditions It should be noted that although the number of unemployed workers dropped sharply in the past year, Local Economic Base and Labor from 1,563 in 2011 to 1,273 in 2012, the size of the Force overall labor force also declined and the total number of workers employed declined as well. This suggests The U.S. Bureau of Labor Statistics (BLS) tracks data on that unemployment may have dropped in part due to employment and labor force trends at the national, workers dropping out of the labor force (so that they state and local levels. Table 6.1 shows the most up- are not accounted for in the official BLS statistics) rather to-date BLS data on the size of Jennings County’s than as the result of any substantive improvements in labor force. The labor force includes the sum of the the local economy. Alternatively, these numbers could employed and unemployed civilian non-institutional indicate that workers (possibly unemployed) moved population aged 16 and over who are currently either out of the county during this period. A more detailed working or seeking work.
74 Jennings County Comprehensive Plan Chapter 6 Economic Development
Table 6.1 Jennings County Labor Force (2011-2012) Labor Force Employed Unemployed August 2011 13,979 12,416 1,563 August 2012 13,576 12,301 1,275 % Change -2.88% -0.89% -18.43% Source: U.S. Bureau of Labor Statistics discussion of Jennings County unemployment trends Research Center, employment in these two industries in the past year is included below. tends to be more highly concentrated (as a percentage of the total labor force) in Jennings County than at the As Table 6.3 shows (on the following page), the largest national level and in a few sub-industries tends to be employment sectors in Jennings County by number of much more highly concentrated. jobs are manufacturing (1,726 jobs) and transportation and warehousing (952 jobs), followed by health care This means that Jennings County firms could either and social assistance (765 jobs) and educational be well off if demand for their products grows or, services (764 jobs). alternatively, could be vulnerable if demand for their products declines. The sub-industry categories most The average annual wage for employment in all affected include: advanced materials, technology, industries in Jennings County was $33,934 in 2011. chemicals and chemical-based products, forest By comparison, the statewide average wage in all and wood products, primary metal manufacturing, industries was $40,248, meaning that Jennings County fabricated metal product manufacturing, machinery falls about 16 percent below the state average and manufacturing, and transportation equipment places 42nd out of Indiana’s 92 counties, a few places manufacturing. above the median county. Educational Attainment Interestingly, the highest average wage per job in any industry in the county was in administrative / waste Table 6.2 shows the level of educational attainment services, where Jennings was the most highly-ranked within Jennings County by degree type. While the county in the state in 2011. Though these jobs offer an percentage of Jennings County residents with at least average wage of over $80,000 per year, employment a high school diploma or a G.E.D. tracks roughly with in this industry makes up less than 2 percent of total the state average, at 86 percent, the percentage with county employment. Other top-wage industries a Bachelor’s degree or higher (9.2 percent) is far less include construction ($45,226), public administration than the statewide average of 22.8 percent. These ($39,055), and utilities ($38,022). figures represent the most recent estimates from the American Community Survey. As the largest employment sector, manufacturing accounts for just under a quarter of Jennings County’s Table 6.2 Educational Attainment (2011) 7,216 total jobs and provides an average annual wage Jennings Degree Indiana of $37,751, while transportation and warehousing, the County second largest employment sector, makes up about High school degree or higher 86% 87% 13 percent of the labor force and provides a wage of Bachelor’s degree or higher 9.2% 22.8% $35,716. According to data from the Purdue Center Source: U.S. Census Bureau, 2008-11 American Community Survey for Regional Development and the Indiana Business
Prepared by SDG & HWC Engineering 75 Table 6.3 Annual Industry Distribution of Jobs and Average Wages in 2011 (NAICS)
% Annual Establish- Industry Jobs Distribution Average Rank in State ments in County Wage Per Job
Total Covered Employment and 434 7,216 100.00% $33,934 42 Wages
Private 390 5,933 82.20% $33,821 45
Agri., forestry, hunting 2 D D D N/A
Mining 2 D D D N/A
Construction 48 750 10.40% $45,226 16
Manufacturing 40 1,726 23.90% $37,751 77
Wholesale trade 16 196 2.70% $32,382 66
Retail trade 63 643 8.90% $22,835 24
Transportation, warehousing 29 952 13.20% $35,716 76
Utilities 3 19 0.30% $38,022 51
Information 4 D D D N/A
Finance and Insurance 24 114 1.60% $36,804 60
Real Estate, rental, leasing 13 37 0.50% $25,148 38
Professional, technical services 22 D D D N/A
Mgmt. of companies, enterprises 1 D D D N/A
Administrative, waste services 14 127 1.80% $84,128 1
Educational services 14 764 10.60% $34,796 11
Health care, social assistance 58 765 10.60% $24,877 54
Arts, entertainment, recreation 4 16 0.20% $7,462 75
Accommodation and food 26 340 4.70% $11,044 57 services
Other services, exc. public 27 D D D N/A admin.
Public administration 25 190 2.60% $39,055 20
Source: U.S. Bureau of Labor Statistics D = Not shown to avoid disclosure of confidential information; N/A = Item not available
76 Jennings County Comprehensive Plan Chapter 6 Economic Development
Table 6.4 Population Trends 1990 2000 2010 1990-2010 Rank in % in Rank in % in Rank in % in Population Population Population growth rate state state state state state state
Indiana 5,544,156 - - 6,080,485 - - 6,483,800 - - 16.9% Jennings 23,661 62 0.43% 27,554 56 0.45% 28,525 56 0.44% 20.6% County North 5,311 105 0.096% 6,515 93 0.107% 6,728 97 0.104% 26.7% Vernon
Vernon 370 475 0.007% 330 497 0.005% 318 551 0.005% -14.1%
Source: U.S. Census Bureau. Note: Rank in State compares Jennings County to other Indiana counties; North Vernon and Vernon to other Indiana places.
Population Trends Income
The most recent population estimates from the Indiana As Table 6.5 shows, Jennings County lags slightly Business Research Center indicate that Jennings behind the state in terms of per capita income and County’s 2011 population reached 28,196, which median household income. Jennings County’s $30,183 represents a slight decline from the 2010 census. As per capita personal income is only about 89 percent of can be seen in Table 6.4, though, the census data from the state average, and the median household income the past three decades show that Jennings County has of $41,869 is about 94 percent of the state median. In grown at a faster rate than the state as a whole, with both categories, Jennings County ranks in the bottom growth of nearly 21 percent since 1990, compared to third of Indiana counties. about a 17 percent growth rate at the state level. In terms of population, Jennings County ranked 56th out of Indiana’s 92 counties as of the 2010 census. Table 6.5 Income of Jennings County Residents (2010) North Vernon is the largest town or city in Jennings Jennings County Income Category Indiana County and has grown at an even faster rate than the County Rank county as a whole, with nearly 27 percent growth since Per Capita Personal $30,183 58 $33,981 1990. As of the 2010 census, North Vernon was the Income 97th largest town or city in Indian with a population Median Household $41,869 61 $44,616 of 6,728. Income Source: Indiana Business Research Center, STATS Indiana
Prepared by SDG & HWC Engineering 77 FIGURE 6.1: Unemployment Rates for Past Year (Not Seasonally Adjusted)
12.0% 11.4% 11.2% 11.1% 10.8% 11.0% 10.5% 10.5% 10.6% 10.2% 9.6% 10.0% 9.5% 9.4% 9.2% 9.2%
9.0% 9.3% 9.2% 8.9% 8.8% 8.8% 8.0% 8.6% 8.6% 8.6% 8.3% 8.3% 8.0% 7.8% 7.0% 7.7%
6.0% Aug-11 Sep-11 Oct-11 Nov-11 Dec-11 Jan-12 Feb-12 Mar-12 Apr-12 May-12 Jun-12 Jul-12 Aug-12
Jennings County Indiana
Source: U.S. Bureau of Labor Statistics
Unemployment in BLS statistics, though they are unemployed for all intents and purposes. The BLS indicates that between September of 2011 and September of 2012, Indiana’s seasonally-adjusted Regional Economic Base and unemployment rate dropped by a full point, from 9.2 Labor Force percent in 2011 to 8.2 percent in late 2012. While the pace of recovery from the Great Recession is still Jennings County’s economy is tightly linked with the slow, substantive improvements in unemployment are broader regional economy, which is evidenced by the occurring at both state and national levels. proportion of the county’s work force that commutes outside of the county for work. Of the county’s implied Figure 6.1 shows unemployment rates by month for resident labor force—that is, the sum of Jennings Jennings County over the past year, compared to Indiana County residents who work, regardless of which as a whole (note: these figures are not seasonally- county they work in—nearly 27 percent commute adjusted). Jennings County’s unemployment rate outside of the county for work, according to IT-40 tax remains higher than state and national averages, but returns. This amounts to an average of around 5,000 it has dropped at a faster rate than either the state or out-commuters over the last five years, compared to national unemployment rates since August of 2011, an average of about 1,600 in-commuters from other falling 1.8 percent between then and August of 2012. counties during that same time period. Figure 6.2 gives This is reflected in the narrowing gap between Jennings a graphic illustration of the number of out-commuters County and Indiana unemployment rates on the right compared to the number of in-commuters in Jennings side of Figure 6.1. As noted above, though, a word County covering the last five years for which data are of caution is needed in interpreting these figures, as available. the numbers may in part reflect workers leaving the labor force. Workers who drop out of the labor force Most of the commuters out of Jennings County travel entirely are not officially counted as unemployed to Bartholomew County (2,259) and Jackson County
78 Jennings County Comprehensive Plan Chapter 6 Economic Development
warehousing. FIGURE 6.2: Commuting Patterns
5,348 5,404 Combined, these 10 firms employ just over a third 4,958 4,866 4,780 of Jennings County’s labor force. The BLS data cited above in Table 6.3 indicates that there are more than 430 employment establishments in Jennings County, meaning that the vast majority of firms in the county 1,667 1,657 1,608 1,655 1,592 are small businesses employing less than 120 workers.
Local Economic Development 2006 2007 2008 2009 2010 Programs, Tools and Resources Number of workers exported Three local organizations dedicated specifically to Number of workers imported economic development activities serve the county: the Source: Indiana Business Research Center, based on IT-40 tax returns Jennings County Economic Development Commission (JCEDC), the Jennings County Chamber of Commerce, (1,341) for work, while majority of the commuters into and the Education and Training Center in North Vernon. Jennings County reside in Jackson (426), Bartholomew (255), and Jefferson (264) counties. The Jennings County Economic Commission (http:// www.jenningsedc.com/) acts primarily as a resource Major Employers for potential and existing businesses by marketing the county to recruit potential firms, identifying funding Table 6.6 lists the 10 largest employers in Jennings opportunities for area businesses, and collecting and County. The range in the number of employees at these distributing valuable data on the local business and firms is large, from 730 workers at Lowe’s Distribution economic climate. Center to 120 at Biehle Electric. As might be expected from the discussion above, most of these companies The JCEDC’s goal areas and work plan include the are in either manufacturing or transportation and following:
Table 6.6 Major Employers Year Employer Employees Description Established Lowe’s Distribution Center 730 1994 Distribution center for home improvement products O’Mara Contractor, Inc. 400 1974 Highway & street construction, utilities, water, & sewer North Vernon Industry Corp 315 1996 Gray iron casting equipment Hilex Poly Co, LLC 275 1987 Plastic bags and plastics recycling St. Vincent Jennings Hospital 185 1999 Hospital Metaldyne 176 1994 Machine connecting rods Martinrea 145 1993 Fuel tubes Decatur Plastics 144 1989 Plastic injection molding Erler Industries, Inc. 121 1988 Industrial painting Biehle Electric 120 1982 Electrical service Source: Jennings County Economic Development Corporation
Prepared by SDG & HWC Engineering 79 ÙÙ Current Industries – continue good relationships Available Industrial Properties with all industries for future expansions and possible supplier relocations to Jennings County. Jennings County has a number of properties available for industrial or commercial use, many of which are ÙÙ Business Retention – assist in maintaining current shovel-ready sites. The following is a sampling of business and help promote new business for future available industrial properties, as compiled by the expansions. Indiana Economic Development Corporation. ÙÙ Workforce Development Program – assist in training programs, assessing job skills of The Miller Site is located off of State Highway 3 and is employees, training grants for industries through approximately 20 miles away from I-65. The site has the State of Indiana and other programs. full utility service, including electrical, gas, sewer and ÙÙ Local Officials – work with local officials when water, and telecom and internet. The site is divisible projects or leads develop. and ranges from a minimum size of 10 acres to a maximum of 180 acres. ÙÙ Area Developers – continue to work with area developers in Jennings County. The North Vernon Municipal Airport Site is located ÙÙ Construction Companies – continue to work with near State Road 3 and State Road 7. Site utilities local construction companies to develop new leads include electricity, natural gas, sewer and water, and for existing and new industries. telecom. The site has a maximum size of 200 acres. ÙÙ Utility Providers – continue to work with utility providers on new and existing projects to develop North Vernon Park 3 is a shovel-ready site located new leads. Jennings County Sites are located in near County Road 350 North and 4th Street in North data bases for Cinergy and Hoosier Energy. Vernon. The site, which is 20 miles from I-65, is zoned as an industrial park and includes a 40 acre site and a ÙÙ Parent Company Visits – frequently call on local 54 acre site, each of which could be further subdivided. company’s parent companies possibly with local Utilities include: electrical, natural gas, sewer and officials. water, and telecom and internet. The JCEDC operates the Education and Training Center which provides facilities in support of workforce The Apsley site is on Deer Creek Road near North development, education and training initiatives. Vernon and includes 5 to 80 acres of industrial property located just one mile from the North Vernon Airport. The Jennings County Chamber of Commerce (http:// The site is also approximately midway (60 miles) www.jenningscountychamber.com/) acts as an between the Indianapolis and Cincinnati international advocate for local businesses and generally attempts airports. Utilities include: electrical, gas, sewer and to promote a business-friendly environment. water, and telecom.
South Central Indiana Economic Development (SCIED) North Vernon Municipal (http://www.southcentralindiana.com/) is a regional partnership of 10 counties – including Jennings Airport County – and the River Ridge Commerce Center. SCIED The North Vernon Municipal Airport is a regional promotes the communities in its region, provides airport that has been operated by the city since 1948. In site location assistance, and research for business September 2012, the Federal Aviation Administration prospects. (FAA) awarded the airport nearly $1.4 million to complete upgrades that would provide more parking
80 Jennings County Comprehensive Plan Chapter 6 Economic Development and taxiing space for aircraft. The new additions will integration of unmanned aerial systems with the U.S. allow the airport to more easily accommodate large National Airspace System. It is anticipated that Indiana/ corporate and military planes. Ohio will be selected as one of six Federal Aviation Administration (FAA) Unmanned Aerial Vehicle test The new investment in the North Vernon Municipal sites. Airport caps off recent runway upgrades. According to the 2012 Indiana Airports Economic Impact Study, the A business plan for the Muscatatuck Technology airport in North Vernon supports more than 400 full- Park calls for the construction of an initial facility, time jobs related to airport activity and contributes an Muscatatuck One (M1), to provide space for park estimated $52 million to the local economy in aviation tenants. Completion of the M1 facility will provide goods, services, and capital expenditures. These space to accommodate nearly 200 full-time employees, numbers are likely to increase when improvements to the majority of which would represent new jobs for the airport are completed. the community.
In October 2012, the Aviation Association of Indiana Agriculture in the Economy (AAI) named North Vernon Airport of the Year in recognition of its excellence in aviation education, Agriculture has historically played a significant part in community outreach, economic development, safety virtually every county’s economy in the state of Indiana and security, and environmental improvement. and in many places continues to do so. This is also the AAI emphasized the airport’s role in improving the case in Jennings County, where the U.S. Department of community’s quality of life and economic opportunities. Agriculture’s most recent Census of Agriculture (2007) The airport accommodates an Indiana National Guard indicates that there are over 600 farms operating and base on-site, assists with the corporate needs of the producing, on average, more than $100,000 in sales Lowe’s Distribution Center, and cooperates with the annually. The market value of all farm products sold requirements of Muscatatuck Urban Training Complex. by Jennings County producers was, according to the most recent data, more than $63 million. This includes Maintaining and improving the North Vernon nearly $36 million in crop sales and just under $27 Municipal Airport’s high level of service is an important million in livestock sales. component of the community’s quality of life and economic health. Figure 6.3 shows the proportion of the 138,331 acres of Jennings County farmland divided between Muscatatuck Technology Park different types of activity. As might be expected, more than three-quarters of the agricultural land is devoted In 2012, the City of North Vernon applied for and was to crops, with 15 percent devoted to woodland and 9 granted state designation of a Certified Technology percent to other uses. Park (CTP). The CTP, called the Muscatatuck Technology Park, is located in the city’s TIF district near the North Figure 6.4 shows the number of farms by value of sale Vernon Municipal Airport. The tech park has the in Jennings County. By far the largest category includes potential to capture up to $5 million in incremental tax farms that gross less than $2,500 in sales annually, dollars. meaning that small farms are prevalent in the county. Recall from above that the average market value of The Muscatatuck Technology Park is poised to take products sold was more than $100,000 per farm. This advantage of restricted airspace located at Camp indicates that in terms of their market share, the 80 Atterbury and Jefferson Proving Grounds to test
Prepared by SDG & HWC Engineering 81 larger farms earning more than $100,000 per year livestock, poultry and related products category, the represent a much larger share of the overall market, precise values for poultry and eggs versus cattle and despite their small numbers. calves were not disclosed for this census, though we can infer from the total sales and the values given for Finally, Table 6.7 gives a breakdown of 2007 agricultural the other subcategories that these two categories sales by commodity group. Ninety-six percent of the comprise about 94 percent of the total value of sales roughly $36 million in crop sales falls in the grains, falling under livestock and poultry. oilseeds, dry beans and dry peas category. In the
FIGURE 6.3: Jennings County Land in Farms FIGURE 6.4: Jennings County Farms by by Type of Land Value of Sales (2007) Other 300 279 Uses 250 9% 200 Woodland 150 72 80 15% 100 49 61 41 31 50 Number of Farms 0
Cropland 76%
Value of Sales Source: U.S. Department of Agriculture, 2007 Census of Agriculture Source: U.S. Department of Agriculture, 2007 Census of Agriculture
Table 6.7 Value of Sales by Commodity Group, Jennings County (2007) Commodity Group US Dollars Total value of crops $35,825,000 Grains, oilseeds, dry beans, and dry peas $34,480,000 Nursery, greenhouse, floriculture, and sod $516,000 Cotton and cottonseed $118,000 Other crops and hay $712,000 Total value of livestock, poultry, and their products $27,260,000 Poultry and eggs Not disclosed Cattle and calves Not disclosed Milk and other dairy products from cows $657,000 Hogs and pigs $857,000 Sheep, goats, and their products $68,000 Horses, ponies, mules, burros, and donkeys $69,000 Other animals and their products $39,000 Source: U.S. Department of Agriculture, 2007 Census of Agriculture
82 Jennings County Comprehensive Plan Chapter 6 Economic Development Economic Development issue for the JCEDC’s business attraction efforts. The current inventory of market rate and executive Trends housing is insufficient to meet demands. There is also a perceived shortage of rental housing. More North Vernon remains the economic hub of the county, information on this topic can be found in the housing housing all of its major employers. Future development chapter. of industrial and commercial sites will likely occur near or around North Vernon as infrastructure such as water and sewer are expanded. For more discussion Goals about development of land around the North Vernon Municipal Airport and the Muscatatuck Urban Training Short Term Goals Complex see the land use chapter and MUTC Impact Continue working on long-term plans to expand CSA. the infrastructure capability of delivering water to new businesses and residential areas. The development of new industrial parks is closely aligned with the final route selected for the U.S. 50 Improve signage and gateways to improve access bypass. Although selection of the final route will not to downtowns and historic destinations such as happen until after this comprehensive plan update Vernon. concludes, efforts will be made to identify future industrial growth areas tied with the likely bypass Protect and promote the county’s identity as a routes. Commercial growth is already happening along good place to live, work, and play. the bypass’s eastern route, which is under construction. Continue orking w with officials to fully integrate A recent survey of Jennings County employers – the Muscatatuck Urban Training Center into the covering nearly 58 percent of the county’s workforce local economy. – found that most offer benefit packages valued between 7 and 35 percent of employee wages. About Support efforts to develop the Muscatatuck 62 percent of the companies that responded indicated Technology Park. that they usually have job openings. Promote an environment that encourages the As a major partner in the North Vernon Stellar growth and expansion of existing companies and Community projects, the Jennings County Economic new business and industry recruitment. Development Commission (JCEDC) is currently heavily engaged in community development. In addition, the Long Term Goals JCEDC maintains strong relationships with the South Ensure that there is sufficient infrastructure and Central Indiana Economic Development marketing developed land available for expanding existing group, Indiana Economic Development Corporation, employers or attracting potential new employers. Indiana Office of Community and Rural Affairs, Indiana Department of Transportation, and Indiana Support local and regional efforts to improve Community Development and Housing Authority. The educational attainment levels and workforce JCEDC strives to stay fully aware of new federal and training opportunities. state programs and initiatives. Continue fforts e to promote existing business The county’s existing housing stock has become an
Prepared by SDG & HWC Engineering 83 expansion and new business and industry ÙÙ U.S. 50 East Bypass Impact Area CSA recruitment. ÙÙ MUTC Compatible Use Area CSA
Implementation Steps Review Project Sheets in the appendix for ideas on:
1. Ensure that there is an adequate supply of ÙÙ Downtown Plans larger, shovel-ready industrial sites where the ÙÙ Capital Improvement Plans planning and zoning, infrastructure, site tests Ù and environmental reports, and ownership Ù Overlay Zones status are clearly resolved.
2. Create multiple agricultural zones for different types of agriculture.
3. Define objective development standards within zoning ordinances that must be met as conditions for permitted use for new agricultural facilities, rather than have a special exception process for new facilities.
4. Develop a site scoring system based on objective criteria to determine whether new facilities meet the conditions set forth in zoning ordinances.
5. Increase code enforcement to prevent the appearance of blighted commercial buildings.
6. Develop a formal economic development plan for Jennings County. One of the key objectives of this plan will be to inventory and prioritize economic development sites in Jennings County in lieu of the U.S. 50 Bypass and recent utility extensions east of North Vernon.
7. Once North Vernon Stellar projects are completed, initiate a countywide branding campaign to promote Jennings County as a regional destination.
What to Do Next
Review Critical Sub Areas in this Comprehensive Plan for:
84 Jennings County Comprehensive Plan Critical Sub Area Chapter 6 Economic Development CSA MUTC Compatible Use Area MUTC Compatible Use Area Introduction within a close proximity to the MUTC facility. Additionally, equipment and supplies are frequently Since its opening in 2005 the Muscatatuck Urban transported to the facility by training participants on Training Center (MUTC) has hosted nationally significant local roads, creating additional volumes on county exercises for urban warfare and disaster training. The roads which could potentially accelerate maintenance facility has been used to train local, regional, national, intervals on these facilities. and international military and civilian law enforcement and disaster response groups. The facility includes over 120 fully functional training structures containing Key Issues and Trends more than 2,000 rooms for conducting realistic, high Major topics relating to continued and expanded stress, combat and rescue mission training exercises. operations at MUTC were identified in the 2009 Camp Atterbury and Muscatatuck Urban Training Center Joint MUTC has been developed to provide world-class Land Use Study (JLUS). That study outlined the needs training facilities for a variety of military personnel and of MUTC operations and the potential impacts on the civilian first-responders. While the training facilities local community. The following items from the JLUS are completely self-contained, the potential impacts should be considered in developing policy statements of MUTC on the Jennings County community go well and implementation recommendations for the land beyond the physical boundaries of the perimeter surrounding the MUTC facility. fence. Current and future potential All personnel training at MUTC arrive at the facility from contributions to local economy: elsewhere and periodically stay within the Jennings County community for extended periods of time. The Muscatatuck Urban Training Center is a unique transient nature of these visitors necessitates the need economic development opportunity for Jennings for adequate short and extended stay accommodations County. The JLUS estimated that the total FY 2012 economic impact of both facilities in the study would reach $616.8 million and that the total amount of military construction would be $156.8 million. In FY 2009 the MUTC facility alone generated an estimated total of $21.16 million in construction projects. With MUTC operations potentially expanding, the impact on the local Jennings County economy can be significant. Military personnel, families, and facility visitors all help contribute to this impact and the facility has the potential to continue to increase expenditures on payroll, facility construction, local expenditures, and jobs created; meaning an improved bottom line for Jennings County and its residents.
Makeshift sign for MUTC
Prepared by SDG & HWC Engineering 85 Critical Sub Area Provision for the short and long-term on county roads. This additional burden means that land use needs of MUTC: a roadway designed to last 20 years under normal traffic conditions may begin to show signs ofwear Existing land uses surrounding the MUTC facility are in much less time. The accelerated decay can lead to typically compatible with the continued operations of potential safety issues and can begin to tax the already the facility. However, with the imminent expansion of limited resources of the Jennings County Highway the U.S. 50 bypass corridor east of the City of North Department. Vernon and provision of expanded sanitary sewer service to Butlerville, Jennings County is likely to rapidly Long-term housing needs to support see development pressures encroaching into the areas MUTC training operations: immediately surrounding the MUTC facility. With this pressure also comes the potential for additional Training operations at MUTC necessitate the provision conflicts due to the nature, and noise, of the training of comfortable long-term or extended-stay housing for operations. Because of the nature of its operations, the groups training at the facility. Many military personnel county must work with MUTC and property owners to can be stationed at a facility for an extended period of develop land use guidelines for the areas around the time. Typically, this means also moving their families base and the airport so that potentially conflicting land with them. These military families become a part of uses can be avoided. the local community. They also contribute significantly to the local economy. In order to welcome these new Reducing adverse potential community families into the community there must be welcoming impacts of training operations: places for them to live, work, and play. This means that there must be an inventory of clean and inviting short- There are many activities associated with MUTC term and extended-stay market rate housing options training missions which produce loud, and potentially available in the Jennings County community. Jennings uncomfortable, levels of noise for an area as far away County should continue to explore ways to promote as 1 mile from the facility. Specifically, sound levels the development of safe and attractive market rate created by low flying aircraft, percussion impacts from housing facilities for MUTC trainees and their families. demolitions, and noise impacts from other training exercises can produce a negative impact on residents North Vernon Airport: and sensitive businesses within this 1 mile area. Continued and expanded MUTC operations are In addition to the findings of the JLUS, there are intrinsically tied to the continued safe operation of additional considerations which must be addressed in the North Vernon Municipal Airport. Jennings County this plan to ensure full integration of the MUTC facility should take steps towards ensuring that the long term within the local community while also minimizing needs of the airport facility are accommodated. This potential local impacts including: should be done in a manner which also encourages surrounding landowners the opportunity to utilize Impacts of convoy vehicles and their land in a manner appropriate and compatible increased traffic volumes on county with the safety requirements inherent in continued roadway infrastructure: airport operations. Additional traffic volumes, especially from potentially heavy military vehicles, can place additional burden
86 Jennings County Comprehensive Plan Chapter 6 Economic Development CSA MUTC Compatible Use Area
acknowledging the potential issues in the district prior to approval of new developments.
This Influence Zone Overlay District will be a ‘transparent’ zone which lies on top of existing Jennings County zoning. It can be used to add additional provisions beyond those required by the existing zoning ordinance. For the Jennings County plan it is recommended that the underlying zone will determine the permitted Runway of North Vernon Municipal Airport land uses, while the overlay district will clearly define the future uses and special conditions Recommendations which will be compatible with the known potential conflicts. This can include the design The 2009 JLUS provides guidance on the land use of infrastructure, transportation facilities, needs and concerns relating to continued and required additional setbacks, and buffer zones. expanded operations at the MUTC installation. After This can also include any other provisions that review of the JLUS, and discussing the topic with will meet the overlay zone’s intended purpose. local residents, the following implementation plan was developed which identifies key steps that the The Initial recommended size of this overlay Jennings County community can take to ensure proper district is one mile from the border of the development patterns occur adjacent to the MUTC MUTC facility. This size was derived from the facility. Specifically, the following recommendations findings of the JLUS and from feedback received have been established to ensure that the long term from local residents. As the county considers needs of both Jennings County and the MUTC facility further action on this recommendation the are met in a mutually beneficial manner: actual limits of the overlay district should be examined in more detail to establish the true The primary recommendation of this chapter is area of potential effect from MUTC training to establish an MUTC Compatible Use Overlay exercises. The overlay district size should district. The intent of this district is to identify the ultimately be determined by the results of the areas around MUTC that take into consideration more detailed study. the direct and indirect implications of the training facility. This ordinance should recognize the Given the potential impacts of MUTC activities rights of property owners to continue to use their on local residents, the county should establish property as they have in the past, and plan to in the a clear policy on how residents and businesses future. It should also identify new development are notified of potentially disruptive activities patterns and land uses that would be appropriate scheduled to take place at the facility. It should in the district, and provide local residents and also work with MUTC leadership to more clearly MUTC the ability to voice any concerns with define, and publish, a formal grievance process for proposed development before permits are issued. residents who wish to notify officials of recurring It would also be appropriate to consider requiring issues related to activities at the MUTC facility. a potential property owner to sign a waiver
Prepared by SDG & HWC Engineering 87 Critical Sub Area
It will be important that Jennings County update zoning maps and ordinances to recognize and define land uses compatible with MUTC within the overlay zone. This effort should also be undertaken for areas surrounding the North Vernon Municipal Airport. Current zoning ordinance must be examined to help determine future actions which must be taken to redefine and rezone land to meet the development needs of these critical areas. It is recommended that this process include MUTC officials, airport officials, and surrounding landowners.
Jennings County should undertake planning efforts for improved short term and long term housing facilities to accommodate military personnel and training operations participants.
It is imperative that the county assess ongoing impacts to local roads from additional traffic volumes and heavy equipment hauling related to convoy vehicles traversing through Jennings County. These assessments should be summarized and incorporated into long range transportation planning efforts. Outcomes of this effort can be suggested convoy routes, long term transportation improvements, and budgeting for long term maintenance needs on impacted roads. Jennings County should consider developing a county road access plan to manage transportation issues when roads are closed due to MUTC exercises and trainings.
88 Jennings County Comprehensive Plan MUTC and Airport Compatible Use Areas Map
Private Rd 685 Legend CR 10 0 1,500 3,000 Private Rd 523
¬3 CR5 « Type of Land Use Incorporated Areas V Graphic Scale (Feet)
Brewersville CR 700 CR CR 400
Triple S Ranch Agricultural PrivateRoad 575 Unincorporated Towns CR 580 CR 675 CR 150 Airport CR 650 Managed Lands CR 650
Commercial CR 500 CR 650 CR 300 Floodplain Industrial
MUTC Boundary Institutional
MUTC Compatible Use Area
Non-Conforming Use E 600 N CR 600 CR 150
Private RdPrivate 25 PUD Airport Compatible Use Area 25 Private CR 575
ResidentialCR 585 North Vernon Bypass CR 580
CR 250 CR 560 Western Route Long Term Res. (Short Term Ag.)
CR 580 Potential Eastern Routes Forrest Preservation - Open Space CR 575
CR 550 Road 200 Private Private Rd 25 Private
CR 555
CR 675
CR 650
Base CR 500
CR 500
Muscatatuck Urban CR 650 State HighwayState 3 CR 450 Training Complex «¬3 North Vernon CR 425 E 400 N E 400 N Airport CR 400 CR 390 CR 400 United States Highway 50
Private Rd 380 CR 550 Betsey Cull ¤£50 CR 700
CR 475
CR CR 75 CR 350 Pr Rd 350 Main North CR 350 School CR 325
CR 20
kj CR 360 CR 225 CR
CR 300 Washington CR 100 CR CR 300
CR 90
CR 260 J F K CR 550 Locust CR 260 CR 250
CR 250 CR 275
CR 500 CR 175 CR
Curry CR 280
Madison CR 210 State Road 7
E 200 N CR 560 CR CR 400
CR 75 CR CR 200 Base
Prepared by SDG & HWC Engineering 89 90 Jennings County Comprehensive Plan 7
Housing 7 Housing
Key Points
Jennings County’s population growth has slowed relative to growth at the state level, increasing by just 2.3 percent since 2000. Slow growth is projected for the next decade.
The median home value in Jennings County declined by 17 percent between 2000 and 2011.
The 44 building permits issued in 2011 amount to less than a quarter the number of permits issued just 10 years prior.
Foreclosures are widespread throughout the county and constitute the largest ongoing problem for the Jennings County housing market, according to local real estate agents.
Desirable areas likely to experience continued growth are in the northern and western parts of the county, especially areas close to larger towns, like North Vernon. There is also some movement in executive housing throughout the county in the $200k-$250k+ range, though activity is still limited, according to local real estate agents.
Existing Conditions Inventory and Assessment: Single Family Residential Land Use The majority of housing units in Jennings County are This chapter of the comprehensive plan assesses the occupied by single families. The most recent data conditions of the local housing stock and develops available on Jennings County housing are from the policies to address the demand for a range of housing Census Bureau’s 2009-2011 American Community options. Survey (ACS). The ACS data reveal the following trends:
Table 7.1 compares data for Jennings County and the ÙÙ Between 2000 and 2011, the Jennings County’s state of Indiana on key housing indicators and shows total housing stock grew by a modest 5 percent, how these indicators have changed since the 2000 compared to statewide growth of 10.4 percent census. Details from the table are discussed below. during the same period.
92 Jennings County Comprehensive Plan Chapter 7 Housing
Table 7.1 Jennings County Housing Data (2011) Characteristic Jennings % of total % change, Indiana, 2011 % of % change, County, 2011 2000-2011 total 2000-2011 Current Population 28,196 - 2.3% 6,516,922 - 7.2% Projected Population, 2020 29,415 - - 6,852,121 - - Total Housing Units 12,048 - 5.0% 2,796,599 - 10.4% Occupied Housing 10,858 90.1% 7.1% 2,469,444 88.3% 5.7% Owner-Occupied 8,297 68.9% 3.5% 1,738,222 62.2% 4.1% Renter-Occupied 2,561 21.3% 20.9% 731,223 26.1% 9.6% Vacant Housing Units 1,190 9.9% -10.9% 327,155 11.7% 66.9% Median Home Value $91,800 - -17.0%* $123,200 - -3.2%* Source: U.S. Census Bureau, 2009-2011 American Community Survey; STATS Indiana *Percentages reflect real change in inflation-adjusted 2011 dollars
ÙÙ At the same time, Jennings County’s population about 26 percent renter-occupied. growth also slowed relative to growth at the ÙÙ While the statewide number of vacant housing state level, increasing by 2.3 percent compared to units increased by more than two-thirds between statewide population growth of 7.2 percent since 2000 and 2011, Jennings County saw a decrease 2000. Jennings County is also projected to grow at of 11 percent in the number of vacant units during a slightly slower rate than the rest of the state over this same time period. the next decade. ÙÙ Adjusted for inflation, the median home value in ÙÙ Owner-occupied units make up about 69 percent Jennings County declined by 17 percent between of Jennings County’s occupied housing stock, while 2000 and 2011, compared to a 3 percent decline renter-occupied units make up about 21 percent. at the state level. These proportions differ somewhat from the ÙÙ In 2011, nearly a quarter of Jennings County’s statewide proportions, where about 62 percent of 12,048 housing units were mobile homes, the occupied housing stock is owner-occupied and compared to only about 5 percent at the state level.
FIGURE 7.1: Jennings County Building Permits Filed 2001-2011 Building Permits
211 Building permits are good indicators of housing growth and can also be indicators of economic growth. Over the last 10 years, the number of residential building 132 139 134 permits issued in Jennings County has dropped 119 113 precipitously. The 44 building permits issued in 86 2011 amount to less than a quarter the number of 57 permits issued just 10 years prior. Although residential 45 37 44 construction at the national level continued to rise until about 2007, when the housing market first began to sour, the downward trend in Jennings County began 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 several years earlier, in 2001. Source: U.S. Census Bureau
Prepared by SDG & HWC Engineering 93 Inventory and Assessment: homes, and residential lots. Of the 173 properties Apartments and Rental Units listed in Jennings County, 142 are in North Vernon, while one is in Vernon, four are in Commiskey, 12 are As of 2011, nearly a quarter of Jennings County’s in Scipio, and 14 are in Butlerville. population lived in rental housing, slightly less than the statewide proportion, and there are a total of Table 7.3 shows that a majority—67 percent—of the 2,561 rental units out of nearly 11,000 total occupied properties listed are valued at less than $100,000. 12 housing units. Rental housing has also grown at a percent of the properties are valued between $100,000 much faster pace in Jennings County in the past and $150,000; 8 percent are between $150,000 and decade than at the state level, increasing by nearly 21 $200,000; and the remaining 12 percent are over percent compared to statewide growth of only about $200,000. Nearly three-quarters of the properties 10 percent. Nearly 54 percent of Jennings County listed are single-family homes, and although there are renters spend 30 percent or more of their income on homes available in each of the price categories listed rent in 2011, slightly more than the statewide average here, about three-quarters of the homes listed fall in of 51 percent. the middle range—between $25,000 and $150,000.
Current Market Snapshot Foreclosures and Short Sales
To get a better idea of the current housing market in As of October 29, 2012, there were five bank-owned Jennings County, we took a snapshot of the Multiple properties for sale in Jennings County. Repossessions Listing Service (MLS) real estate listings in Jennings have a negative effect on property values. This effect County for October 2012. This analysis includes only can be seen most clearly in areas like Country Squire properties listed in the MLS system for Jennings County Lakes where property values have fallen and code and does not include properties listed by real estate enforcement is problematic. Reductions in property brokers who are not members of the MLS. values also translate into reduced tax revenues for local government. As shown in Table 7.2, there are four types of properties listed in Jennings County: apartments or multi-family homes, single-family homes, manufactured or mobile
Table 7.2 Properties for Sale by City (October, 2012) North Ver- Vernon Scipio Butlerville Commiskey Total non Apartments / Multiple 5 0 0 0 0 5 Family Home Single-family Home 102 1 6 11 3 123 Manufactured / 3 0 2 0 0 5 Mobile Home Lots / Land 32 0 4 3 1 40 Residential Total 142 1 12 14 4 173 Source: Realtor.com, 16 October 2012
94 Jennings County Comprehensive Plan Chapter 7 Housing Housing Trends families may be doubling or tripling up in single homes. Local Realtor Perspectives ÙÙ One realtor said, “There are really two separate markets: foreclosures and arm’s length Local realtors were asked their opinions on residential transactions.” land use issues and current trends in the local housing market. The following section summarizes their ÙÙ The area around Country Squire Lake is particularly comments. slow, and there is an especially large concentration of foreclosed manufactured and mobile homes in General Trends that area. ÙÙ Foreclosures are widespread throughout the Anticipated Future Growth county and constitute the largest ongoing problem for the Jennings County housing market. ÙÙ With few exceptions, growth has stalled in the Jennings County housing market, and there is not ÙÙ There is little-to-no growth in county housing, much building going on currently. Developers are and a significant portion of the movement in reluctant to build spec homes, for example, and the current market involves groups of investors most of the home sales are foreclosure sales. purchasing homes at foreclosure auctions either to be used for rental housing or to be rehabilitated ÙÙ There may be some halting signs of improvement, and resold. as one realtor indicated that she believed the market has been picking up in the past few months. ÙÙ Rental housing is in short supply in places, though there is demand for it. ÙÙ Desirable areas likely to experience continued growth are in the northern and western parts of Foreclosures the county, especially areas close to larger towns, like North Vernon, and employment opportunities. ÙÙ The foreclosure problem noted above has had repercussions beyond the housing market, as ÙÙ There is also some movement in executive housing local banks have suffered significant losses, local throughout the county in the $200k-$250k+ range, government has lost tax revenue, and some though activity is still limited.
Table 7.3 Properties for Sale by Price (October, 2012) <$25k $25k- $50-$75k $75k- $100k- $150k- >200k Total $50k $100k $150k $200k Apartments / Multiple Family 0 0 1 4 0 0 0 5 Home Single-family Home 4 21 23 33 18 12 18 129 Manufactured / 0 2 1 2 0 0 0 5 Mobile Home Lots / Land 17 6 4 3 4 2 5 41 Residential Total 21 29 29 42 22 14 23 180 Source: Realtor.com, 16 October 2012
Prepared by SDG & HWC Engineering 95 Challenges Housing Alternatives ÙÙ There is an ongoing problem with banks According to the 2009-2011 American Community being unwilling or unable to lend to potential Survey, Jennings County closely tracks the statewide homeowners. Realtors indicated that banks are statistics in its clear preference for detached, single- often unable to lend to homeowners in large part family housing. These units comprise 69 percent of the because of tighter lending requirements as the county’s total housing stock, while about 73 percent result of the housing and financial crises. of the statewide housing stock consists of detached, ÙÙ Anecdotally, one realtor noted that he recently single-family units. had a couple with a credit rating of nearly 750 that was unable to get a $25,000 loan for a down At 9.9 percent, the vacancy rate in Jennings County is payment on a foreclosure home that was selling lower than the statewide vacancy rate of 11.7 percent. for only $50,000. And as noted above, the number of vacant units has ÙÙ Country Squire Lakes was consistently singled out actually declined by close to 11 percent since 2000, as an area with an especially high foreclosure rate while at the same time the number of vacant units as well as a larger concentration of housing in need at the state level actually increased by a substantial of rehabilitation. margin. Ù Ù One realtor indicated that the area where there Subsidized Housing is most unmet demand for housing is for modest- sized homes in the $100,000 to $130,000 range. The availability of rental housing for low-income ÙÙ Rental housing continues to be in low supply tenants is important. In Indiana, such housing typically in some parts of the county. In particular, the comes in the form of Section 8 housing developments. Muscatatuck Urban Training Center tends to draw This program is income based and the eligibility in short-term residents who only plan to live in the guidelines are set by the Department of Housing and area for two to three years and who may require Urban Development. rental housing that currently is not available.
Table 7.4 Project-based Section 8 Developments Development Address City Telephone Ivy Park Apartments 31 Ivy Park North Vernon (765) 529-5520 North Vernon Senior Housing 45 Henry Street North Vernon (812-346-6232 Valley Court Unknown North Vernon (317) 794-5899 Village Apartments of North Vernon 500 Hayden Pike North Vernon (812) 346-1128 Harmony House Apartments 151 Moir, Avenue North Vernon (812) 346-2801 Lincoln Place Apartments 934 Veterans Drive North Vernon (812) 346-8548 North Vernon Senior Housing 45 Henry Street North Vernon (812) 346-6232 Oak Meadows Apartments 1450 Oak Meadow Drive North Vernon (812) 346-9683 Valley Court of North Vernon 500 Hayden Pike North Vernon (812) 352-8544 Village Apartments 555 Brownstown Road North Vernon (812) 346-1128 Source: Indiana Housing & Community Development Authority; United Way of Jennings County
96 Jennings County Comprehensive Plan Chapter 7 Housing According to the Indiana Housing and Community Priorities and Action Items Development Authority website, “A project-based Section 8 development provides rental assistance The community is not growing, foreclosures are to make affordable rental units [for] low-income widespread, home values have declined substantially people. When you get help through a project-based in the past decade, and residential construction has section 8, you have to live in that particular housing come to a standstill. Given these factors along with the development.” costs associated with extending utilities to new areas, improvements of existing residential neighborhoods Table 7.4 lists the project-based Section 8 housing should be given a higher priority than development of development in Jennings County. new residential areas. Local Housing Organizations Goals Community Housing Development Organizations Short Term Goals (CHDOs) assist communities with housing development. Jennings County is currently served by three Housing ÙÙ Control and improve the quality of housing by Development Organizations: the Southern Indiana having developers meet design standards with their Housing and Community Development Corporation, local properties and requiring lots to be adequately Ohio Valley Opportunities Inc., and Southeastern served by water and sewer infrastructure. Indiana Community Preservation and Development. ÙÙ Restore deteriorating and foreclosed properties Each organization is based outside of Jennings County while encouraging the development of a diverse but serves the greater region. housing spectrum that includes upper-income and rental properties. Housing Grants
As shown in Table 7.5, organizations located within Long Term Goals Jennings County have received over $1.5 million in ÙÙ Encourage sustainable and green housing housing grants in the past decade and a half, though development that protects the county’s the most recent grants were received in 2002. environmental and groundwater resources.
Table 7.5 Jennings County Housing Grants Year Grant Recipient Grant Type Grant Amount 1997 Jennings County Owner Occupied Rehabilitation $224,996.85 1999 Ohio Valley Rental Rehabilitation $750,000.00 Opportunities Inc. 2001 City of North Vernon Feasibility Study $18,950.00 2002 County of Jennings Housing Needs Assessment $30,000.00 2002 City of North Vernon Rental Rehabilitation $496,625.00 Total $1,520,571.85 Source: Indiana Housing & Community Development Authority
Prepared by SDG & HWC Engineering 97 Implementation Steps Make amendments to zoning and subdivision ordinances to comply with planning-related state law changes that went into effect in July 2011.
Employ basic design standards to improve the appearance of new residential development.
Conduct a countywide housing needs assessment to provide a thorough analysis of the housing market and detailed recommendations improving and diversifying the county’s housing stock.
Make active code enforcement a priority to address the number of houses in foreclosure and blighted areas.
Explore options for neighborhood revitalization in certain areas, including the Country Squire Lakes community and any other areas identified as suitable candidates for revitalization.
Pursue housing grant options to fund the aforementioned projects.
Form a housing coalition or taskforce to address local housing issues.
98 Jennings County Comprehensive Plan Critical Sub Area Chapter 7 Housing CSA Country Squire Lakes Country Squire Lakes
Country Squire Lakes’ problems are Jennings County’s problems, and as the obstacles are intertwined, so are the solutions. They will require CSL residents and county leaders to work together.
With approximately 3,500 residents, CSL is the county’s second largest community, according to the 2010 Census. County government assumed ownership of about 950 tax delinquent properties and recently agreed to take over some of CSL’s roads, further deepening the relationship.
CSL, a private development, is managed by Elite Property Management Services of Indiana. Residents Home with yard debris are represented through a seven-member board of directors and five committees for roads, the lake, etc. budget has been cut by about 25 percent, Angel said. Also, if the county took over all of CSL’ streets, Elite’s property manager for CSL is Jesse Angel. In an management could shift the money that now goes interview for this planning document, Angel said there toward street repair to other problems such as has been progress in making the private community repairing the dam, he said. financially solvent. County officials said there is a lot of work to be done Because the county does not pay resident fees for the before granting those requests, including assurances approximately 950 parcels it owns, CSL’s operating that substandard housing won’t be allowed on the 950 plots.
A detailed game plan for CSL’s future is beyond the scope of this plan. However, there are some initial steps that the two sides can take toward cooperation in tackling problems.
The first is increased communication. Although it is not essential, initial meetings between the sides should probably be facilitated by an independent third party. These discussions should be steered away from past recrimination and moved toward shared goals.
A rusted home in Country Squire Lakes
Prepared by SDG & HWC Engineering 99 Country Squire Lakes Map
0 1,250 2,500 610 360 Legend275
V Graphic Scale (Feet) Incorporated Areas Type of Land Use 600 Agricultural Unincorporated Towns Blossom Airport North Vernon Bypass
State Highway 7 Commercial Western Route Industrial
kj Full Access, Signalized Intersection 200 Institutional GF Full Access, Stop Controlled Intersection Managed Land550
350 Non-Conforming Use No Access, Road Closed with Cul-de-sac PUD Note: Routes and intersections provided by Parsons Residential
Rintway Floodplain345
Camelot Special Use
500 500
Lake Shore
Sunset
Crystal
350
Brandywyne Queensville 450 Abbey
Taylor Buckingham Ellingsworth
Eddington 415 300 Shakertown McIntosh
Bradbury
Broadus 395 Avonshire Cliffshire Unrd Saxon Coventry Gardens 400 Blynshire 385
Locustwood Manor Country Nottingham Hickory Tudor 295 Crestwood Maple Beech Dorver Shrimpton Country Squire Elm Aspen Greenbriar Willow Dorchester Hawthorne 275 Atkinson Ashley
White Oak 350 Whittington
Heatherlan Foxmoor Tulip Tree Cardinal
Almond Rensleer Ginger Larkspur «¬7
Hylander Magnolia Fern Grove Hoosier
Thistle Bristol Cedar Knoll Forrest Grove Dogwood State Road 7 Derbyshire Wildwood
275 300
Dam
350
240 250
Crestwood
400 Manor 200
500
250 Spencer
100 Jennings County Comprehensive Plan Chapter 7 Housing CSA Country Squire Lakes
Topics of these early meetings could include:
1. Leadership development of CSL residents so that the area can engage in sustained and long-term redevelopment.
2. Enforcement action on derelict and abandoned property.
3. County plans for the lots it owns.
4. County acquisition of the remaining CSL oads.r
Once dialogue has been established and both sides are well represented, the next step would be formalizing a comprehensive plan for CSL and its relationship to the rest of Jennings County.
Country Squire Lakes includes a diverse mix of home styles
Prepared by SDG & HWC Engineering 101 Critical Sub Area
CSL Clubhouse sign Home for sale in Country Squire Lakes
102 Jennings County Comprehensive Plan 8
Natural Resources 8 Natural Resources
Key Points
As surface water from the Muscatatuck River provides water service for nearly half of county residents, protection of this resource is of the highest priority. Development protections should be considered along both sides of the Muscatatuck River throughout the community, and especially between North Vernon and the Brush Creek Reservoir.
There is potential in Jennings County to capitalize on its significant inventory and quality of managed lands as an additional source of economic development. Providing wildlife related services and amenities, including hunting, fishing, hiking, and biking the county can begin to take advantage of the unique resources available.
Introduction for productive uses other than forestland, perpetually preserving these areas in a naturally occurring state. River bottoms and forested rolling uplands have long provided the means for sustenance for residents of Similar to most Indiana counties, Jennings County has Jennings County. Early Native American Indians once a small proportion of land currently being used for used the rich floodplains to grow grain crops and used urban and industrial uses. Approximately 1 percent the forested uplands for harvesting abundant wild of Jennings County is currently urban or industrial in game. Evidence of this pattern has been unearthed in nature with a majority of this developed area being artifacts found in the Muscatatuck River Valley dating focused in the central portion of the county near the to approximately 8,000 to 9,000 B.C. communities of North Vernon and Vernon.
Modern Jennings County residents follow a similar Topography and Geology living pattern on the land, albeit at a larger scale. Jennings County boasts an abundant agricultural Jennings County has an approximate total land area of heritage which continues today with nearly 42 percent 242,278 acres or approximately 380 square miles (Soil of land being used for cropland and pasture. Survey p. 1). According to the most recent soil survey, the most significant active land use in the county is for Jennings County also boasts an abundance of natural agricultural purposes with approximately 36 percent of areas with nearly 57 percent of land being woodland land being cropland, 6 percent pasture and 57 percent or wetland. Most of the forested land remaining in woodland (Soil Survey p. 1). Jennings County occurs on steeply sloped upland areas or in wetland areas of local floodplains. The The highest elevation in the county is approximately typical characteristics of forested land prove difficult 896 feet above sea level in an area of Columbia
104 Jennings County Comprehensive Plan Chapter 8 Natural Resources
Township northeast of Zenas. (Soil Survey p. 4) and the ÙÙ Graham Creek (major stream) lowest elevation in the county is approximately 527 ÙÙ Muscatatuck River feet above sea level and occurs along the Muscatatuck ÙÙ Wyloosing Creek River where it leaves Jennings County (Soil Survey p. 4) There are also countless tributaries and drainage areas Karst Topography providing water to the major streams and rivers in Jennings County is home to numerous areas of karst Jennings County. Every county or municipality which topography, which is an area of soft or soluble rock that depends on surface water for drinking water supply has been eroded away through time by groundwater. must understand surface water flow in order to help The result is voids or pockets in the remaining harder alleviate potential pollution issues. Knowing and rock known as karst. understanding the sources of water for these features in Jennings County is important since a significant Karst areas are difficult to develop due to potential amount of the county’s population derives its drinking for sink holes, caves, and other features which create water from surface water sources, specifically the difficulties in location and construction of structures. Muscatatuck River. Given the sensitive nature of these important resources, Jennings County should take Karst areas can also provide groundwater through extra measures to ensure that they are protected from a direct linkage to subterranean aquifers which are potential sources of pollution. used for groundwater. This makes karst areas potential hotspots for water contamination from groundwater Wetlands containing silt and other suspended solids. Areas of Jennings County with high potential for karst Jennings County has small wetlands scattered topography are highlighted on the Environmental throughout the county but no real concentrations Resources Map. in a specific area. Wetlands serve an important role in cleaning and processing freshwater and provide valuable habitat for many ecologically important Hydrology plant and animal species. It is important that wetland Major Streams/Rivers habitat be appropriately identified and protected from the detrimental effects of agricultural practices and The major flow of surface water in Jennings County development. is for the east-northeast to the west-southwest. Understanding surface flow is important in Groundwater/Aquifers understanding where water is coming from and in determining potential for non-point source pollution Jennings County has three distinct aquifers systems and its impacts on the local water supply. Non-point which have been identified including: sources of pollution can be derived from many varied ÙÙ New Albany Shale of Devonian and Mississippian sources such as fertilizers, urban runoff, erosion age (low quality) sediments, roadway and agricultural salts, and human and animal waste. There are five major water bodies in ÊÊ Silurian and Devonian Carbonates (generally Jennings county including: capable of meeting domestic water usage) (typ. depth of 60-125 ft.) ÙÙ Sand Creek (major stream) ÙÙ Maquoketa Group of Ordovician age (minor ÙÙ Vernon Fork of Muscatatuck River (major stream) groundwater source in Jennings County)
Prepared by SDG & HWC Engineering 105 Environmental Resources Map Columbus Millhousen Legend 0 8,000 16,000 Incorporated Areas Wetland Type Cave Entrances (per sq.km.) V Graphic Scale (Feet) Unincorporated Towns Freshwater Wetland 1 Managed Lands Freshwater Pond or Lake 2 «¬46 Westport Riverine 3 Federal Karst 4 E 1200 N State
Private Sinkhole Areas
N N 800 E River or Stream Sinking Stream Basins
E 1000 N Elizabethtown W 1400 S
Zenas
200W
N N 400W
N N 400E N N 600E
E 800 N N N 200E W 800 N Tannersville N W 600 «¬3
«¬7 Brewersville S 600 S E Scipio E 600 N W 600 N W 600 N S 600 S E Nebraska
Queensville MUTC ¤£50 N 800 E E 400 N E 400 N
N N W 800 E 400 N W 400 N Butlerville
N W N 600 Oakdale
E 200 N W 200 N
W 200 N
N N 400W N N 400E
North Vernon
N800 W N N 600E
Hayden Vernon
¤£50
Grayford S 400 S E San Jacinto 800 S E
W 200 Sx W 200 S Four Corners
E 400 S W 400 S E 400 S Walnut Ridge «¬7
Lovett W 1200 N
S 200 S W
S 200 S W S 400 S W
S 600S W E 600 S W 600 S Staples Ford
Dupont S 200 S E
W 1000 N S 800 S W ¨¦§65 E 800 S W 800 S «¬3 Commiskey
¤£31 S 400 S W 250
«¬ 200 S W Hilltown Paris Crossing Paris
1200 S
106 Jennings County Comprehensive Plan Chapter 8 Natural Resources
Water quality from bedrock aquifers in Jennings such as: County is typically suitable for domestic use although sulfur water has been reported in scattered locations. ÙÙ Agricultural runoff A significant amount of the water supplied by Jennings ÙÙ Point source pollution Water, Inc. is derived from groundwater resources in ÙÙ Industrial effluent and around Jennings County. ÙÙ Leaking septic systems Watersheds ÙÙ Underground storage tanks ÙÙ Unlined waste disposal sites The entire Jennings County watershed drains to the East Fork of the White River and its tributaries. There Water supply is also limited to concentrated locations are four main watersheds serving public drinking water within the county. This places limits on areas needs in Jennings County including: available for development and also places additional development pressures on those areas which have ÙÙ Vernon fork of the Muscatatuck River which access to the water supply. supplies water to the Brush Creek Reservoir and MUTC. Floodplains/flooding ÙÙ North Vernon Watershed supplying the Muscatatuck River and water supply for the City Floodplains in Jennings County have a tendency to of North Vernon Utilities (North Vernon, Vernon, be narrow and of minimal impact to development Country Squire Lakes). potential due to the geologic and topographic ÙÙ Scottsburg - Stucker Fork watershed supplying the conditions of the region. Many of the major streams Muscatatuck River. and rivers in the county are deeply entrenched with nearly level floodplains located along the reaches in ÙÙ Mitchell Bedford Watershed supplying the East certain isolated locations. The entrenched nature of Fork White River. the streams in Jennings County means that flooding along these systems occurs less frequently than what Brush Creek Reservoir and the Muscatatuck River is typical for other portions of the state. are the main sources of water for Jennings County, supplying over 50 percent of the county’s population Temporary local flooding can occur along the flat level (North Vernon and Vernon) with daily water needs. In floodplains of the streams and in locations where the relation to other locations, Jennings County currently soils are easily saturated and slow draining. The soil has relatively few sources for drinking water making survey identified certain soil types which are more the protection and preservation of the existing water prone to seasonal flooding. These locations should sources very important. Natural disasters, drought, be considered when determining future development and pollution are the main threats to the current potential of sites within the county. water sources in Jennings County. The limited number of supply sources means that one unforeseen event Refer to the Watershed Map for rivers, lakes, floodways, could significantly disrupt the ability to supply water to and food zones in Jennings County. homes and businesses in the county for an extended period of time. Pollution on the Muscatatuck River is Soils of primary concern since most of the water supply for residents and businesses comes from the river and Soils in Jennings County do present a significant pollution can come from a variety of possible sources barrier to land development. Prime farmlands in the
Prepared by SDG & HWC Engineering 107 Watershed Map Columbus Millhousen Legend 0 8,000 16,000 Corporate Limits River or Stream V Graphic Scale (Feet) Lake or Pond North Vernon Corporate Limits Square Run Watershed Area (HUC14) k Unincorporated«¬46 Towns Westport e e
r
C
f l Floodway o Managed Lands W E 1200 N Flood Zone Federal
k e e r
"A" N 800E C State e North Fork-Flatrock/Wolf Creeks c k I e
e Sand Creek-Rock/Ice Creek r "AE" C r Private a g Sand Creek E 1000 N S u Elizabethtown W 1400 S
k e re C Zenas il ek a W 200 e tt r N 400 W 400 N a C k r North Fork-Sugar/Leatherwood Creek R e ea
re B N 400 E 400 N h C c g n Rock Creek in Sand Creek-Millstone ra h k s E N 600 B c e o ch n e o n ra r l E 800 N F i B C a
r y s E 200 N t a t e W W 800 N e B
n N 600 W 600 N n Wyaloosing Creek-Turnover Creek Tannersville e North Fork-Finch Branch B k «¬3 Sand Creek-Bear Creek ree h ttle C Wyaloosing Creek-Rat Tail Creek c Ne Wyaloosing Creek-Bear/Bennett Creeks n Brewersville a Sand Creek-Nettle Creek «¬7 S r a B S 600 E 600 S n d k g Cre e n k o ek e L re e C r Scipio Sand Creek-Fish Creek E 600 N ush C Br
k W 600 N Brush Creek (Jennings) c W 600 N
o S 600 E 600 S R Nebraska Fish Creek
k e Otter Creek re Queensville MUTC E N 800 C ¤£50 n P o le E 400 N E 400 N t a t W 800 N E 400 N s u Creek a tton nt M W 400 N u R un tle M it L Mutton Creek-Upper North Fork-Pleasant Run/Long Branch
Little Otter Fork Butlerville Sixmile Creek-Twomile Creek
N 600 W 600 N nch North Fork-Deer Creek Oakdale a r
B Otter Creek-Huckleberry Branch
y E 200 N r W 200 N r e W 200 N D b e
e l N 400 W 400 N e k k e r C c rm Cr e ree u h o eek r k c H t C E 400 N S n ile k a Storm Creek-Upper Two m O ee r tter C r B h s North Vernon u
N800 W R
k E 600N ree k C e Crooke d e r Hayden C Vernon
n ia d Otter Creek-Crooked Creek In Go o h 50 se c ¤£ Graham Creek-Campfire Creek n R un ra B Grayford Vernon Fork-Indian Creek e
Vernon Fork-Sixmile Creek E 400 S n
S 800 E 800 S i Ve v rn San Jacinto e on p a Four Corners F ork r W 200 Sx W 200 S Vernon Fork-Crosley Lake G D u Run c urkey Storm Creek-Lower k B T ran ch Little Graham-Horse & Poplar Branch Graham Creek-Turkey Creek
E 400 S W 400 S E 400 S Walnut Ridge ek Graham re C Big Creek-Camp Creek Vernon Fork-Polly Branch «¬7 P B W 1200 N ek o lly ranch re Lovett Marble Creek
C W 200 S
e il m
x i
S rk
o W 200 S S 400 W 400 S
S W S 600 E 600 S F W 600 S y
h Staples Ford s u Graham Creek-Zion Lake r Dupont B ek a Cr e Te E 200 S Bear WCreek 1000 (Jennings) N
S 800 W 800 S Tea Creek Vernon Fork-Gum Lick Creek ¨¦§65 G um Lick Creek k E 800 S ree W 800 S r C Coffee Creek ea «¬3 B
le t
t reek i Bear Creek (Jennings) C L ed 31 k
¤£ o Commiskey
o r
S 400 W 400 S k C e ek re re r C C ea B
e 250 t a ¬ W 200 S « l S k Grassy Creek (Jackson) Muscatatuck-Fower/Slate/Crooked Cr e e Hilltown r
C
e k e e Muscatatuck R-Cana Creek ff re o Graham Creek-Paris Neils Creek C C na a Paris C Fowler Branch 1200 S
108 Jennings County Comprehensive Plan Chapter 8 Natural Resources northern half of the county are well drained and very traveled more than 50 miles to reach the location, productive but a significant portion of the soil types and they spent an average of $65 per person per in the remainder of the county are not well drained. day in the local economy. It was also found that In addition, soil depths and types over most of the local visitors spent on average $28 per person per county do not contain characteristics conducive to the day. treatment of waste water via septic systems. As you State Managed Lands can see from the Soils Suitability Map on page 110, nearly all of Jennings County soils are classified as not Jennings County is also home to three state wildlife suitable for septic systems, meaning that choices are areas which are managed by the Indiana Department of limited for development in areas not serviced by a Natural Resources. Combined, these lands encompass municipal sanitary sewer connection. nearly 7,000 acres of varied natural habitat. Below is a summary. Parks and Recreation/ ÙÙ Selmier State Forest is a 355 Acre wooded parcel Natural Areas located on the eastern boundary of the City of North Vernon. This property is open to numerous Jennings County enjoys a significant amount of recreational activities including hiking, fishing, managed lands (federal, state, or local preserves) hunting, and camping. within its boundaries, a large proportion of which are publicly accessible. Having managed lands assists the ÙÙ Crosley Fish and Wildlife Area is a 4228 Acre area county in numerous ways including protecting sensitive located southeast of the Town of Vernon. This or endangered natural ecosystems, providing ample wildlife area is a regional draw for hikers and recreational opportunities for residents and visitors, hunters on a year-round basis. and providing ample space for wildlife habitat. Below ÙÙ Brush Creek State Fish and Wildlife Area is 2402 is a brief summary of the major parcels of managed Acres surrounding the Brush Creek Reservoir. lands within Jennings County. Originally established to help protect the reservoir, and its critical water supply, from runoff and Federal Managed Lands pollution. This area is now adjacent to the MUTC facility and remains an ecologically important area ÙÙ Part of Big Oaks National Wildlife Refuge (former within the county. Jefferson Proving Grounds) lies on the eastern border of Jennings County. The entire property County/Regional Parks and encompasses nearly 50,000 acres of land formerly known as the Jefferson Proving Grounds. Nature Preserves Approximately 7,700 acres of this refuge lie within There are also a number of other locally managed and Jennings County. private preserves within Jennings County including ÙÙ Part of Muscatatuck National Wildlife Refuge is Muscatatuck County Park (86 Acres) which was also located within Jennings County’s borders. This formerly a state managed facility. Following is a list refuge encompasses 7,724 Acres total and receives of additional outdoor resources available to Jennings in excess of 170,000 visitors annually. A recent County residents and visitors. study on the economic impacts of the Muscatatuck National Wildlife Refuge noted that 27 percent ÙÙ Violet and Louis J. Calli Sr. Nature Preserve of its annual visitors are non-local, meaning they ÙÙ Tibbett’s Woods Nature Preserve
Prepared by SDG & HWC Engineering 109 Soils Suitability Map Columbus Millhousen Legend 0 8,000 16,000 Managed Lands Suitability Rating Not Limited (n/a) V Graphic Scale (Feet) Unincorporated Towns Somewhat Limited Floodplain«¬46 Westport North Vernon Bypass Very Limited
Western Route Null or Not Rated
Elizabethtown Zenas
«¬3 Tannersville Brewersville Scipio
«¬7 Nebraska
Queensville MUTC ¤£50
Butlerville kj
kj Oakdale
GF
GF North Vernon
Hayden GF Vernon
50 ¤£ Grayford San Jacinto Four Corners
Walnut Ridge
Lovett «¬7
Staples Ford Dupont ¦¨§65 «¬3 Commiskey ¤£31
«¬250 Hilltown Paris Crossing Paris
Crothersville
110 Jennings County Comprehensive Plan Chapter 8 Natural Resources
ÙÙ Well’s Woods Nature Preserve $700 million for trip related activities (food, fuel, ÙÙ Sarah Lewis Guthrie Memorial Woods Nature lodging, etc.). While not all communities are suited to Preserve capitalize on this large and growing industry, Jennings County has the resources and land available to be able ÙÙ North Vernon People Trail to take advantage of this type of recreational tourism opportunity. In addition to the resources listed above, Jennings County currently has the following additional projects in planning and development stages. When completed, Trails and Greenways they will add to the generous inventory of recreational Jennings County enjoys the benefits of a developing areas that Jennings County residents and visitors will trails system. A majority of the existing and planned be able to enjoy. trails are located near the largest population centers ÙÙ Eco Lake Park in the county, among the City of North Vernon and the Town of Vernon. The Vernon – Muscatatuck Park – North ÙÙ Muscatatuck Trail Vernon Trails Master Plan presents a comprehensive vision for connecting key Jennings County community Economic Impact of assets and cultural resources via the development of Managed Lands extensive trail and sidewalk improvements. Following is a list of the trails identified in the Trails Master Plan: There is significant potential in Jennings County to capitalize on its significant inventory and quality of ÙÙ North Vernon Rails to Trails managed lands as an additional source of economic ÙÙ Vernon – North Vernon Railroad Trail development. Providing wildlife related services and ÙÙ Vernon Bluffs – unnelT Mill – Vinegar Mill Trail amenities, including hunting, fishing, hiking, and biking Ù the county can begin to take advantage of the unique Ù Tunnel Mill – Park Campground Trail resources available. The proximity of the county to ÙÙ County Park – North Vernon Rails to Trails major metropolitan areas and I-65, coupled with ÙÙ Railroad Boardwalk / Vernon Commons – Calli the relatively low out of state license fees in Indiana Preserve Trail can add up to significant tourism revenue if initial investments are focused towards the development of These trails are strategically placed to provide appropriate amenities and marketing campaigns. improved shared-use access to many key historic and natural features in the county, such as: The potential economic impact of this industry is often overlooked by rural communities but the numbers are ÙÙ North Vernon Mini-Park staggering. In 2011 people participating in hunting, ÙÙ Walnut Grove School fishing, and wildlife recreational activities spent $32.2 ÙÙ Muscatatuck County Park billion on travel related expenses, approximately $43.2 billion on equipment and gear, and approximately ÙÙ Town of Vernon Historic District $14.6 billion on licenses, fees, and memberships. ÙÙ Crosley State Fish and Wildlife Area (2011 USFWS National Survey of Fishing, Hunting, and ÙÙ Tunnel Mill Wildlife Associated Recreation) In Indiana, wildlife related expenditures contributed approximately $1.8 ÙÙ The “Commons” Playground Site billion to the local economy including approximately ÙÙ Calli Nature Preserve
Prepared by SDG & HWC Engineering 111 Source: FPBH, Inc. 112 Jennings County Comprehensive Plan Chapter 8 Natural Resources
When completed, the trails system will provide between the various protected forest lands in residents and visitors of Jennings County communities eastern Jennings County. the opportunity to enjoy the beauty and intrigue of theses, and other, rich natural features and historic The potential for failing septic systems to negatively context free from the constraints of an automobile. impact local water quality is high. Jennings County The county should continue to encourage and support should work towards improving the current system the City of North Vernon and the Town of Vernon in of septic system dependent site development the development of the trails system for the benefit of review. More detailed descriptions of this issue are all county residents and visitors. located in the Utility Infrastructure chapter.
Prepare a county-wide park and recreation master Recommendations plan, and marketing plan with North Vernon, IDNR, Abundance of managed lands can be a county and USFWS to provide a cohesive campaign to resource and should be viewed as a potential highlight natural resource areas. economic development resource for the Consider identification and development local economy. The community should study protections of significant karst topography within opportunities to take advantage of these Jennings County. Apply development protections properties. similar to those recommended for the Muscatatuck The unique position of the county between River watershed. Since karst areas are significant two national wildlife refuges, availability of contributors to the local aquifers, steps should other managed lands for wildlife activities, and be taken to reduce the potential for groundwater proximity to I-65 corridor uniquely positions pollution of these sensitive areas. Strategies for county to take advantage of this type of enhancement of sediment and erosion control tourism revenue. measures, as well as the reduction of chemical and biological contaminates should be explored As surface water from the Muscatatuck River to help protect the integrity and safety of county provides water service for the majority of county wells. By encouraging the appropriate use of these residents, protection of this resource is of the areas through policy actions and land use controls highest priority. Jennings County will be taking great steps towards the protection of valuable water supplies while Development protections should be considered also helping to ensure that potentially high costs along both sides of the Muscatatuck River associated with development on these unstable throughout the community, and especially surfaces is avoided. between North Vernon and the Brush Creek Reservoir. Such protections could include Jennings County should work with the Soil and increased erosion and sediment control Water Conservation District to explore ways to practices, development limitations, stormwater make informed future land use decisions based runoff quality provisions for new development, upon an analysis of development suitability. or other protections. A long term goal of Factors such as riparian buffers (geologically and establishing a conservation corridor along the topographically possible due to deep stream river is also recommended to protect linkages geology), Floodplain/aquifer protection, and
Prepared by SDG & HWC Engineering 113 future development potential based upon soil classifications and suitability for septic and building improvements should be a key consideration as the county explores the development potential of land beyond currently developed areas.
References:
• County Soil Survey • 2010-2011 Muscatatuck Visitors survey: http://www. indianaeconomicdigest.net/main.asp?SectionID=31&SubSectio nID=116&ArticleID=65033
114 Jennings County Comprehensive Plan 9
Transportation 9 Transportation
Key Points
Completed construction of the U.S. 50 bypass will open up new areas of the county for economic development. Jennings County and North Vernon should work closely together to manage development to the greatest benefit of all. Specific issues surrounding the U.S. 50 bypass corridor have been addressed in more detail in the U.S. 50 East Bypass Impact Area CSA in this document.
There is potential in Jennings County to capitalize on its significant inventory and quality of managed lands as an additional source of economic development. Providing wildlife related services and amenities, including hunting, fishing, hiking, and biking the county can begin to take advantage of the unique resources available.
Completion of the U.S. 50 ypassb may mean that existing traffic patterns will shift to access points along the new bypass. This means that roads which are adequate to handle current traffic volumes may be subject to increased wear, deterioration, and congestion due to potentially increased volumes of local and regional traffic.
The North Vernon Municipal Airport is an important resource for Jennings County residents and business. This asset has also been identified as an important factor in the continued and expanded operations of the Muscatatuck Urban Training Center (MUTC). Efforts should continue to limit the development of land surrounding to uses which will be compatible with the continued safe operations of the airport.
Introduction increase. In today’s world of aging infrastructure and increased use, it is becoming difficult for most counties Transportation infrastructure is a key component to maintain their existing transportation infrastructure to ensuring that Jennings County remains relevant at acceptable levels, not to mention being able to in an increasingly competitive environment for provide improvement to allow for much needed businesses and residents. Maintenance to the existing residential, commercial, and industrial expansion. transportation network is a continual source of financial burden for many counties and municipalities Jennings County currently has many positive across the State of Indiana. As existing infrastructure transportation related assets at its disposal. INDOT is continues to age up to and beyond its functional in the process of completing a significant investment capacity, this financial burden will only continue to in the improvement of vital county roadways in the
116 Jennings County Comprehensive Plan Chapter 9 Transportation form of major upgrades to the U.S. 50, S.R. 7, and S.R. of Seymour to the west and the Town of Versailles, 3 corridors. Likewise, the North Vernon Municipal and eventually Cincinnati, Ohio to the east. U.S. 50 is Airport is seeing increased daily traffic as a result of the also an important corridor for the MUTC facility and recently opened MUTC. Added up, these investments provides direct connection between MUTC and I-65. have created an opportunity for the county to continue to plan for the long term needs of the community with INDOT is currently in the process of design and carefully planned and focused investment in the local construction for a U.S. 50 bypass around the north transportation network. The following text describes side of the City of North Vernon. The west portion of the major components of the transportation network the bypass to S.R. 7 is currently under construction in Jennings County and provides recommendations for and the east portion of the bypass from S.R. 7 back continued provision and expansion of this important to the original U.S. 50 alignment is currently under community asset. environmental review and scheduled for opening in 2015. The importance of the U.S. 50 bypass for the future of Jennings County is discussed in more detail Existing Conditions in the Critical Sub Areas portion of this planning Interstate Access document. Jennings County has no direct interstate access within S.R. 7 its boundaries but does benefit from interstate access within close proximity on the western and northern State Road 7 (S.R. 7) is a regional corridor which runs boundaries of the county. The closest interstate from the southeast corner of Jennings County to the access for Jennings County is to I-65, which is located northwest corner of the county. S.R. 7 is the most direct approximately 3 miles west of the Jennings County / link for Jennings County to Madison, Indiana and the Jackson County line near the City of Seymour. Direct Ohio River to the south. The road runs through the Town access to I-65 is achievable via U.S. 50, which traverses of Vernon and the City of North Vernon and continues the central portion of the county. This exit is located in a northwesterly direction into Bartholomew County approximately 13 miles west of the City of North and Columbus, IN to the north. S.R. 7 has become an Vernon. important travel corridor for Jennings county residents commuting to work in nearby Columbus, IN and, as I-74 is also accessible for Jennings County residents. a result, has become an important commercial and The closest I-74 access is located 21 miles northeast residential corridor. There are numerous residential of the county at the intersection of S.R. 3 and I-74 in developments which have occurred along this corridor Greensburg, IN in neighboring Decatur County. northwest of North Vernon, including the county’s largest residential development, Country Squire Lakes. U.S. 50 Much of the county’s residential and commercial development occurs along this corridor with a U.S. 50 is a major east west national highway corridor concentration of development occurring between the with a length of approximately 3,000 miles. In Jennings City of North Vernon and Bartholomew County to the County, U.S. 50 traverses through the central portion northwest. of the county, through the heart of the City of North Vernon. U.S. 50 provides the most direct access for S.R. 3 county residents to Interstate 65 west of Jennings County. It also provides a direct connection to the City State Road 3 (S.R. 3) is a regional corridor connecting Jennings County to Greensburg, IN and I-74 to the
Prepared by SDG & HWC Engineering 117 Transportation Map
Columbus Millhousen Legend 0 8,000 16,000 Managed Lands kj Full Access, Signalized Intersection Civil Township Boundary GF Full Access, Stop Controlled Intersection V Graphic Scale (Feet) No Access, Road Closed with Cul-de-sac NORTH VERNON Note: Routes and intersections provided by Parsons Unincorporated Towns «¬46 Functional Class (INDOT) Westport Railroad Status Other Principal Arterial (OPA) Active Line Minor Arterial E 1200 N Abandoned Line Major Collector North Vernon Bypass Minor Collector
Western Route N 800 E Potential Eastern Routes E 1000 N Elizabethtown W 1400 S Columbia
N 600 E Zenas
200 W 200
N 400N W
N 400 E N N 200 E E 800 N
W 800 N
Tannersville 600N W «¬3 Sand Creek S 600 E S Scipio Geneva E 600 N W 600 N W 600 N S 600S E «¬7 Nebraska
Queensville MUTC
¤£50 N 800 E E 400 N W 400 N Campbell kj kj
N 600 W N Oakdale E 200 N W 200 N
W 200 N GF N 400N W
GF Center N 400 E
N 800 W North Vernon N 600 E Hayden GF Vernon
¤£50
Spencer Grayford S 400 E S Bigger 800S E W 200 SxW 200 S Four Corners Vernon
«¬7 E 400 S W 400 S E 400 S Walnut Ridge
W 1200 N Lovett
Lovett 200S W
E 600 S S 400S W
S 600S W W 600 S Staples Ford Dupont
S 200S E W 1000 N ¨¦§65
E 800 S ¤£31 W 800 S Montgomery
Marion
S 400S W
S 200 W S S 800 W S Hilltown «¬3 Paris Crossing 250 Paris «¬
1200 S
118 Jennings County Comprehensive Plan Chapter 9 Transportation north and Charlestown and S.R. 62 to the south. The Public Transit/Transportation Park 3 Industrial complex is located on this corridor Services just north of the City of North Vernon. Most major development along this corridor in the north is (From 2007 Indiana Statewide Public Transit Needs currently limited to locations within the corporate Assessment) boundaries of North Vernon but additional industrial growth at the industrial park is supported in the 2009 Jennings County currently has no publicly funded North Vernon Comprehensive Plan, which means transit service but there are a number of agencies future development pressure beyond what is currently and services which provide scheduled and limited developed is likely. transit services for county residents. The largest of these services is Catch-a-Ride, operated by the non- Rail Transportation profit Life Time Resources. This service operates in Jennings County and provides custom, scheduled Jennings County currently has two active rail lines transit services for people of all ages and incomes. This operating within the county boundaries. The Madison service offers flexible scheduling and competitive fare Railroad, a short line track operated by the City of options for Jennings County residents and includes Madison Port Authority (CMPA) Madison Rail Line, services such as route deviation, and demand response operates a single line track between North Vernon and services including rural route, and same day service. Madison, Indiana on the Ohio River. The total length Catch-a-Ride is the only service provider outside of the of the track is 25 miles and is operated out of former Columbus MPO (Columbus Transit) with a passenger Jefferson Proving Grounds site on the southeast edge fare structure in place (state study, p. III-10). of Jennings County. The Madison Railroad mainly provides commodity hauling and storage services for a Jennings County is also served by a variety of other variety of materials including plastics, steel, and scrap private and non-profit transit services which are metal. Service for the Madison Railroad terminates available to consumers who meet specific eligibility in the Park 3 Industrial Complex and the line provides criteria and/or who are receiving member services service to the following locations in southern Indiana: from the various providing agencies including job Madison, Dupont, Vernon, & North Vernon training, mental health, medical care, and counseling services. These services are not typically available to The other rail line serving Jennings County is operated the general public in Jennings County. by CSX. This line provides services from St. Louis, MO through Cincinnati, OH, and has connection Airport to the eastern United States via linkage to the vast network of more than 21,000 miles of track owned The North Vernon Municipal Airport is the only and operated by CSX (CSX Website, www.csx.com). operating municipal airport in Jennings County. The The location of this line adjacent to the current and airport was opened in 1944 and has two operating future U.S. 50 corridor east of the City of North Vernon runways. Runway 5/23 has a total length of 5002 presents opportunities for providing multi-modal (rail feet and runway 15/33 has a total length of 2730 and truck) transportation access from a single site feet. In 2009 the airport averaged 23 aircraft per day within the county. This line also connects to many with 51 percent of the activity coming from local other Indiana communities including the following general aviation and 24 percent derived from military locations: Vincennes, Seymour, Hayden, North Vernon, activities. In the Atterbury Muscatatuck Joint Land Butlerville, and Osgood. Use Study (JLUS) the North Vernon Municipal Airport
Prepared by SDG & HWC Engineering 119 was identified as an important strategic resource for 50 Bypass is one of those major investments. The west continued and expanded operations at the MUTC portion of this bypass is currently under construction facility. at an estimated cost of $22 million. The east portion of this bypass is currently in planning phases and is The airport has recently undergone significant scheduled to be completed by 2015. The impacts of upgrades to allow for streamlined operations and to the U.S. 50 East Bypass are discussed in further detail accommodate larger aircraft. A recent runway upgrade in the Critical Sub Area portion of this chapter. In will allow for large military aircraft, such as the C-130 addition to this major bypass investment, the INDOT Hercules, to safely land and taxi at the airport. The Long Range Transportation Plan has identified the airport also contributes a significant positive economic following major roadway project scheduled to take impact to the region. The recently released 2012 place in Jennings County between now and 2030: Indiana Airports Economic Impact Study noted that the North Vernon airport contributes over $52 million 2011-2015 funded projects annually in direct and indirect economic output. The ÙÙ U.S. 50 from U.S. 31 to western urban area study also noted that the airport operation has helped boundary of North Vernon, added travel lanes to create and sustain 426 jobs with an estimated from 2-4 lanes (9.03 miles). annual payroll of $19.5 million. ÙÙ U.S. 50 from western UAB of North Vernon to County land use and development decisions can eastern urban area boundary of North Vernon, impact airport operations. Safety and noise issues at added travel lanes from 2 to 4, 3.9 miles. the facility can render certain land uses incompatible 2016-2020 funded projects with continued operations at the airport. There are also federal clear zone requirements for airport ÙÙ U.S. 50 bypass from western UAB to eastern UAB operations which must be taken into considerations of North Vernon. as future land use decisions are made. The previously mentioned JLUS also provided specific safety and noise 2026-2030 funded projects recommendations surrounding military operations at ÙÙ U.S. 50 added travel lanes from east UAB of North the airport, which are also addressed in the MUTC Vernon to S.R. 101, 27 miles. Critical Sub Area Chapter in this plan. Expanded airport ÙÙ S.R. 7 added travel lanes from S.R. 3 to U.S. 31, 2-4 access and capacity can help create new economic lanes, 14.9 miles. development opportunities but will require that current airport lands be protected and that land uses The planned access points along the new U.S. 50 surrounding the airport facility remain compatible West Bypass are classified to continue to be eligible with the operating needs of the airport. for federal funding under the state transportation improvement program. However, many of the roads Planned Transportation feeding into these locations are currently classified as Improvements minor collectors or local roads; making them currently ineligible for federal transportation funds. Since these While there are no significant long range transportation roadways will potentially be receiving additional plans available at the county level, there continues traffic volume after the completion of the bypass the to be significant investments made by the Indiana county should begin monitoring them for accelerated Department of Transportation (INDOT) in improving decay and additional maintenance requirements. significant state roads within Jennings County. The U.S. These roads should also be studied on a periodic basis
120 Jennings County Comprehensive Plan Chapter 9 Transportation to determine if they are eligible for an upgrade in an enticing location for additional logistics and classification which will make them eligible for federal military industry development. transportation funding. Recommendations Develop a county-wide long range transportation plan which considers the possible long term effects on local roadways connected to the U.S. 50 bypass corridor and long term needs based upon predicted development growth patterns.
Any roads which have a direct connection to planned U.S. 50 bypass access points should be included in the system for detailed evaluation of predicted future traffic volumes and appropriate long range planning efforts. Additional efforts should be made to monitor the condition of these roadways since increased traffic volumes can lead to premature decay of the roadway condition.
Continue ot work with INDOT in evaluating the long term traffic needs of the S.R. 7 and S.R. 3 corridors. Ensure that the necessary roadway improvements are in place prior to, or in conjunction with, approved industrial and commercial development.
Work with the North Vernon Airport Authority and MUTC to ensure the required airport safety zones are respected and that approved improvements surrounding the airport facility are compatible with the long range plans for airport operations. This recommendation also includes the addition of a North Vernon Airport Compatible Use Overlay District. A more detailed description of this issue, and the details of the intent of a compatible use overlay district are discussed in the MUTC Compatible Use Area CSA section of the plan.
Work with the North Vernon Airport Authority and MUTC to determine the potential for taking advantage of excess airport capacity and the proximity of the new U.S. 50 bypass to develop
Prepared by SDG & HWC Engineering 121 Critical Sub Area U.S. 50 East Bypass Impact Area Introduction Key Issues and Trends Jennings County and the City of North Vernon are in The 2009 North Vernon Comprehensive Plan included a the midst of experiencing the first major transportation development plan for the U.S. 50 bypass. The plan was development in many decades. The announced based upon an early version of the proposed routing. investment by the State of Indiana and the Indiana While some details of that plan have changed, it is Department of Transportation (INDOT) in the U.S. 50 the intent of this plan to generally follow the planning bypass around the City of North Vernon is a significant goals established in that plan. More specifically, the development which carries with it great opportunity. plan identifies residential growth to the west along An investment of this nature also can fundamentally U.S. 50, commercial growth along S.R. 3, and industrial alter existing development patterns within the growth further north along S.R. 7. community. Since the completion of the North Vernon Jennings County must begin to immediately address Comprehensive Plan, INDOT has started construction the potential impacts that a completed U.S. 50 on the U.S. 50 west bypass (west of S.R. 3). This choice bypass corridor will bring. Careful consideration of shifted the route further east towards North Vernon. the long term development needs of the community, This shift means that land uses originally identified along with focused investment into the existing core in the North Vernon Comprehensive Plan need to be communities surrounding the bypass, will allow the revised to ensure appropriate land development. county to leverage the highest possible potential from this investment. Planning ahead will also help Routing for the U.S. 50 east bypass (east of S.R. 3) alleviate some of the potential long term negative has been refined to three potential alternatives. The consequences typically associated with a large scale included map shows the three alternatives currently project of this nature, consequences such as: being considered and the context of the surrounding area. Selection of the final preferred alternative will • Fragmented development patterns and not be identified until after completion of this Jennings incompatible land uses, County Comprehensive Plan. The Steering Committee for this plan has appointed a representative to the • Disinvestment in core neighborhoods and U.S. 50 East Bypass Community Advisory Committee downtown commercial districts, to ensure that the Comprehensive Plan’s goals are adequately represented in the selection of the final • Deteriorating local infrastructure due to preferred alternative. increased demand on local roadways at bypass access points, This is a significant project with potential impacts to the surrounding land use and community context. The • The tendency for sprawl development near the project will consist of approximately 10 miles of new improvements due to increased development roadway which will be constructed as a bypass around demand in areas experiencing no organic the west, north, and east sides of the City of North population growth. Vernon. All project corridors have a proposed right of
122 Jennings County Comprehensive Plan Chapter 9 Transportation CSA U.S. 50 East Bypass Impact Area way section which is 300’ wide. This accommodates the North Vernon Airport in this portion of future expansion needs for the roadway but also the county, provides excellent opportunities means that approximately 36 acres of land must for provision of multi-modal transportation be purchased per mile to accommodate this width. options connecting to larger cities such as St. With an estimated construction cost for the west end Louis and Cincinnati. The completion of the U.S. bypass being $22 million, the project also represents 50 bypass will enhance this potential with its a major financial investment in the Jennings County direct connection to the I-65 corridor and the community. The project will be completed in the larger markets of Louisville and Indianapolis. following two sections: • There is an abundance of level, productive • The west section of the bypass, which is farmland in the portion of Jennings County currently under construction, is scheduled for directly adjacent to, and along, all of the completion in late 2013. potential U.S. 50 Bypass corridor alternatives. The nature of this land makes it ideally suitable • The preferred alternative for the east bypass to accommodate future development due to will be selected in early 2013 with construction the level, well-draining characteristics of the scheduled for completion in late 2015. land. But the productive nature of this land also brings the potential for conflicted interests Regardless of the preferred alternative selected for in determining the best long term use of these the U.S. 50 east bypass, there are a several factors parcels. which will play an important role on the long term impacts the bypass will have on county land use and • MUTC is located very near the terminus points development patterns. for all of the U.S. 50 east bypass alternatives. Continued operations at this facility bring • First, there are currently plans being increased demand for supporting services implemented which will extend sewer and facilities such as housing, commercial utility services east of North Vernon into the development, and supporting industries. county along the existing U.S. 50 corridor. These services are primarily intended to All of these factors combine to provide a catalyst for provide for the long term needs of general increased demand for development along the U.S. 50 economic development along the corridor east bypass corridor. While increased development and MUTC. New utility service will also be demand can provide a positive economic development able to accommodate additional residential, climate for the county, careful steps must be taken to commercial, and industrial growth along U.S. ensure that the proper controls are in place to avoid 50 between North Vernon and Butlerville long term conflicts with the needs and demands of through additional forced main connections or potentially competing land uses. Care must also be lift stations. taken to ensure the safety, quality, and integrity of the utilities supplying this portion of the county to • There are active railroad tracks, owned by CSX, insure they are capable of handling the increased which run parallel to U.S. 50 in the east-central capacity demands which inherently follow increased portion of Jennings County. The proximity of development pressures. this rail service, along with the presence of
Prepared by SDG & HWC Engineering 123 Critical Sub Area
In addition, there will be additional pressures placed preservation in the area, compatibility with Rose on locations along the entire U.S. 50 bypass corridor Acre Farms, and the demand for the location. where direct access to the freeway is available. Typically, these areas see increased demand for Work with utility providers to develop an commercial and industrial development due to the incremental improvement plan to ensure that proximity and ease of access to a major roadway development does not jeopardize the integrity network. Care must be taken in these locations to of the utility services and to ensure planning of ensure that appropriate development is encouraged appropriate utility improvements to allow for which will enhance the overall character and quality implementation of future development plans. of life for Jennings County residents. Care must also be taken to ensure that this potential future development Ensure that appropriate land preservation does not detract from the local business in the heart of measures are in place to help protect and preserve the urban areas in North Vernon and Vernon, causing watersheds (especially along the Muscatatuck their eventual decline and decay. Care must also be River), prime agricultural land, and greenspace. taken to limit development growth to areas which have been prepared for development with appropriate transportation and infrastructure improvements prior to allowing development to occur.
Recommendations
Work with U.S. 50 Bypass Community Advisory Committee to provide guidance on selection of a preferred eastern corridor alternative.
Support the original land use goals of the U.S. 50 bypass plan identified in the 2009 North Vernon Comprehensive Plan. Some modifications are proposed on the updated land use plan to reflect alignment changes made since that plan was developed.
Work with APC and City of North Vernon to update the bypass section of the North Vernon Comprehensive Plan so that there is one common land use plan adopted for the corridor.
Develop a master plan for a business/industrial park on U.S. 50 between North Vernon and MUTC. The study should make recommendations on the land use controls, how to balance agricultural
124 Jennings County Comprehensive Plan U.S. 50 East Bypass Impact Area Map
Queensville
«¬3 MUTC
E 400 N
North Vernon Airport
W CR 350 N kj «¬7
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Incorporated Areas North Vernon Bypass MUTC Boundary Type of Land Use Non-Conforming Use Agricultural Western Route PUD Unincorporated Towns MUTC Compatible Use Area Airport Residential Eastern Route Alternatives Airport Compatible Use Area Managed Lands Commercial Long Term Res. (Short Term Ag.)
Long-Term Growth Industrial Forrest Preservation - Open Space GF Floodplain kj Full Access, Signalized Intersection ¤£50 Eastern Area Institutional Base Road GF Full Access, Stop Controlled Intersection Western Area 0 1,500 3,000 No Access, Road Closed with Cul-de-sac «¬3 «¬7 V Graphic Scale (Feet) Note: Routes and intersections provided by Parsons
Prepared by SDG & HWC Engineering 125 126 Jennings County Comprehensive Plan 10
Utility Infrastructure 10 Utility Infrastructure
Key Points
One of the largest factors impacting any new development is the location of available sanitary sewers. Since there is currently only one public wastewater treatment plant in the county, most growth will be centralized to areas surrounding North Vernon
Septic issues in rural parts of the ountyc can pose significant health hazards, create water quality issues, and decrease the value of rural property. Steps must be taken to ensure that approved development with no access to municipal waste systems have adequate land to provide for long term sanitary sewer needs.
Jennings County should direct growth to where it can best be served by public infrastructure. By developing where infrastructure exists or is planned (especially sanitary sewer), the long term public costs for development can be limited.
Introduction There will continue to be many areas of the county without access to sanitary sewer systems. Since these Historically, most significant development in Jennings areas will need to be served by on-site septic systems, County has occurred in and around North Vernon the Land Use section of this plan recommends because of the availability of sanitary sewers. these areas be limited to low intensity residential and agricultural uses. More specific development In a similar manner, most growth that is foreseen in standards for septic systems should be developed for the next 10-15 years can occur within areas already these areas. served by sanitary sewers – or in areas where service is currently being extended. Consequently, upgrading and incremental expansion of these existing/planned Jennings County Septic sanitary sewers will be critical in order to maintain Systems capacity for growth along the new US 50 bypass and Jennings County, like many Indiana counties, has to the east toward the Muscatatuck Urban Training limited sanitary sewer access away from the most Center (MUTC). highly developed portions of the county. This means Development potential along U.S. 50 between North that new development is frequently dependent upon Vernon and I-65 will be limited since this area is difficult the use of septic systems for the proper disposal of to serve because of the lack of sanitary sewer capacity waste water. Septic systems are a good way to provide in this area. Development of a mid-to-long-term plan for sanitary service in rural areas of the county if to serve this area is important to the future growth of they are adequately designed and well maintained. the county. Unfortunately, many of these systems are well
128 Jennings County Comprehensive Plan Chapter 10 Utility Infrastructure designed but lack regular maintenance over the long longer term, permanent solution, was completed. haul which keeps them from functioning properly. In But more often than not, the permanent solution the case of an existing system, one of the only ways never materialized and the existing septic systems are for the county to discover that they are working beginning to fail at alarming rates. There are also cases improperly is to receive complaints from nearby within the county where municipal service has been residents or businesses. By this time, environmental denied to residents and neighborhoods even though damage very well could have occurred. the nearest facility is only one-quarter of a mile away. Multiple examples of this have occurred in Jennings As is the case in many Indiana counties, the older County near existing municipal sanitary service. septic systems in many of Jennings County’s neighborhoods are not up to current codes. Likewise, To address these issues, the county will need to adopt many homeowners are not educated on the proper stronger regulations for new septic systems. These maintenance of septic systems and do not know how regulations will need to require larger lot sizes, and to prevent problems before they become a major issue. provide guidance for the types of development that Another issue is that many residents do not check the will be allowed on septic systems. suitability of a building site for septic installation prior to purchasing property and many people purchasing Jennings County existing homes are not aware of problems with the septic system until after the purchase has been Sanitary Sewers completed. For a site which does not have adequate space for another system to be installed, this could Jennings Northwest Regional equate to a very large repair bill. Utilities – Sanitary Sewer
Sanitary sewer service for the northwest quarter Many of the small subdivisions within Jennings of Jennings County and the Country Squire Lakes County were built with the assumption that a small community is provided by Jennings County Northwest package treatment facility or eventual connection to a Regional Utilities (JNRU). The existing private waste municipal sanitary system would be completed. Many water treatment plant treats an average of 352,000 of the septic systems in these locations were designed gallons per day. for short term functioning to get them by until a
Wastewater is treated at the wastewater treatment facility, which is located on the south side of CR 300 N along Six Mile Creek. The current capacity of the treatment plant is 1.7 million gallons per day.
Recent upgrades have been made to the existing wastewater treatment plant. The existing vacuum sewer systems have been replaced along with piping to the lagoons. The only current issue associated with the plant is an order from IDEM that all the sludge in the lagoon is to be removed within 5 years.
Most of the gravity collection system used by JNRU Work being done on a basin of the Jennings Northwest Regional Utilities waste water treatment plant in 2008. is plastic pipe that was installed in the early 1970s.
Prepared by SDG & HWC Engineering 129 Smoke testing has shown many leaks and areas of plan identifies mandated improvements to be infiltration. Almost all of the existing sanitary sewer completed to the sanitary sewer system. lines will need to be replaced in the near future. The city has significant inflow and infiltration into the Summary of Jennings Northwest County system. Smoke testing and other efforts have resulted Utilities Sanitary Issues in the elimination of many downspouts and related ÙÙ The existing sanitary sewers are reaching an age flows into the system. However, they continue to where they will need to be repaired in the coming discover field tiles and other undocumented pipes that years. Testing has been done to identify areas that drain into the system. will need to be repaired for the system to continue Currently, Jennings County and the City of North to function properly. Vernon are in the process of extending sanitary sewer ÙÙ IDEM has ordered the sludge from the existing service east to Butlerville and the Muscatatuck Urban lagoons to be removed within the next 5 years. Training Center (MUTC). The sewer has been designed with the intention of serving a future industrial park North Vernon– Sanitary Sewer and other development along U.S. 50 between North Vernon and MUTC. It is a 10” forced main system with The City of North Vernon operates a sanitary sewer a new lift station which will be installed at the MUTC utility. There are currently 38 miles of sewer pipe of facility. This system, when complete, will enable the which approximately 60 percent is combined sewer. current MUTC wastewater treatment plan to be taken There are 20 pump stations which connect to three off line. The current MUTC system serves the military main sewer lines. Four of the lift stations experience installation, Butlerville, Campbell Township, and the surcharging during significant rain events. The City of Brush Creek School. North Vernon’s wastewater is treated by a 2.2 million gallon per day (average design flow) activated sludge The new forced main is being installed by the county type wastewater treatment plant with at peak design but will ultimately be owned and maintained by North flow of 4.76 Million gallons per day. Flows ultimately Vernon. The lift station, with pumps rated at 460 gallons discharge into the Muscatatuck River. per minute, is scheduled to be in operation by the end of 2013. The system has also been designed to allow There is one Combined Sewer Outfall located at the wet individual homes to connect to it via grinder pumps, weather pump station at the waste water treatment as well as subdivisions and industrial complexes with plant. During significant rain events, flows in excess of a larger lift station and forced main. The cost of the the plant’s capacity are pumped to a 1 million gallon system was partially funded through the Indiana equalization basin for storage. Once the flow has been Economic Development Administration. reduced, flow from the storage basin is pumped back to a location at the plant for full treatment. When the There have been discussions of the development of total flow to the equalization basin is greater than 1 a satellite sanitary sewer treatment facility for North million gallons, the excess flow is discharged to the Vernon. Refer to the Infrastructure Chapter of the river. 2009 North Vernon Comprehensive Plan for more detailed information on this topic. The city is under an Agreed Order with the Indiana Department of Environmental Management (IDEM) Summary of North Vernon Sanitary Issues for the implementation of their Combined Sewer Overflow (CSO) Long Term Control Plan (LTCP). This ÙÙ The sanitary sewer system is operating at sufficient
130 Jennings County Comprehensive Plan Chapter 10 Utility Infrastructure
rate. Upgrades to eliminate CSOs, collection ÊÊ Hayden Water, serving 1,000 residences and problems with the lift stations that are surcharging, businesses in Spencer Township. and yearly maintenance of all existing lines are all needed to position the utility for the future. Roughly half of the population in Jennings County is While there is capacity for modest development, supplied by Jennings Water. Jennings Water utilizes these limitations must be addressed to keep the regional groundwater sources for its water and treats community competitive in recruiting new business all drinking water at wholly owned, independent and industry. facilities. The groundwater wells for Jennings Water are located to the west, in Reddington in Jackson Campbell Township Rural Sewer County. District – Sanitary Sewer Summary of Jennings Water Issues The existing MUTC wastewater treatment facility will ÙÙ Jennings Water has an interest in expanding to be taken offline. All flows from Butlerville, Campbell several small areas in the county. Township and Brush Creek School will be directed to the new lift station. Jennings Northwest Regional
A new sanitary sewer force main is currently under Utilities – Drinking Water construction. A new lift station will be constructed at Drinking water is provided to the northwest quarter the Muscatatuck Urban Training Complex next spring, of Jennings County and the Country Squire Lakes and in operation by the by the end of 2013. The new community by Jennings County Northwest Regional lift station will have the ability to pump 460 gallon per Utilities. Water supply is purchased from Jennings minute. County Water.
The new force main has been designed to allow The current system has adequate capacity for its needs. individual homes to connect with a grinder pump. There are some concerns with the pressure that is Larger subdivisions and industrial parks will be allowed supplied in certain areas. No major improvements are to connect using a new lift station. scheduled in the immediate future. Jennings County North Vernon - Drinking Water Drinking Water The City of North Vernon operates its own water utility. The utility currently pumps approximately 1.5 Jennings Water, Inc. million gallons per day of water. The utility is currently under construction with a water system improvements Jennings Water, Inc. is a private utility system which project. This work is scheduled to be completed in serves over 3,000 households, businesses and schools 2013. Upon completion of the improvements, the directly, including an estimated 11,000 individuals. The capacity of the water treatment plant will be increased utility also provides water to the following regional to 5 million gallons per day filtration capacity, providing utility systems: a substantial increase over the current production. ÊÊ Jennings Northwest Regional Utilities, serving The completion of this water project will help to 1,300 households in Country Squire Lakes support ongoing economic development efforts in the community.
Prepared by SDG & HWC Engineering 131 Water storage is currently provided in the system The county should develop updated standards for through the following: septic systems. First, the county should require lots to be large enough for both a primary septic system, ÊÊ The city currently has two 300,000 gallon and a backup system in the event the first system elevated water storage tanks. fails. A lot size with a minimum of 1 to 2 acres (or ÊÊ A 1 million gallon ground storage tank is more if the site has large changes in elevation) may provided at the water treatment plant. be necessary. Second, the county should limit the use of septic systems to low intensity residential The city’s current water source is the Muscatatuck developments. Commercial, industrial and larger River. Since the quality of the water from the river is residential subdivision developments should be not a constant, the water utility is evaluating options directed toward areas with public sanitary sewer for improving the quality of its water source. Options systems. being evaluated include development protections along the Muscatatuck River, obtaining water directly References from the Brush Creek Reservoir, or development of a • May 12, 2010 Plain Dealer Article: http://plaindealer-sun.com/ raw water storage reservoir. main.asp?SectionID=3&SubSectionID=40&ArticleID=12748
Summary of North Vernon Drinking Water Issues ÙÙ With the planned improvements to the water system, the community’s drinking water infrastructure will be well suited to accommodate modest growth. Recommendations The most cost effective areas for future growth for Jennings County will be in areas surrounding North Vernon because of the availability of existing infrastructure. New commercial, industrial and residential subdivision growth should be directed into areas that are served by existing water and sanitary sewer systems.
Development in western Jennings County along the U.S. 50 corridor is currently limited since sanitary sewer service is not available. Development will likely require the construction of a new wastewater treatment facility to serve this area. The county should work with the City of North Vernon to plan for this mid-to-long term growth opportunity. Until sanitary sewers are available, development should be limited in these areas.
132 Jennings County Comprehensive Plan 11
Implementation Plan 11 Implementation Plan
The success of this comprehensive plan is in the hands already have. of Jennings County’s residents -particularly its elected and appointed officials. A lot of community time and resources went into the completion of this comprehensive plan and it will take Although every citizen plays a role in steering the even more resources for it to succeed. community’s future, it is the officials who make the day-to-day decisions that determine what a community This section details the steps needed to make the looks like. plan work, but the burden of implementation falls upon the Jennings County Area Plan Commission. The For evidence of those officials’ ability to influence comprehensive plan is their guiding document, and the future, look at the previous comprehensive plan, the decisions they make based upon it can only be completed in 1994. That document discouraged made easier if the community understands its goals zoning for upscale housing. To keep building costs and reasoning. low, it recommended against requiring new housing developments to put in curbs, sidewalks and other Helping People community-building infrastructure. Understand the Plan Now, almost 20 years later, there is a shortage of To get the most out of planning, some effort is needed upper-income homes, meaning people with good, to help stakeholders understand its basic goals and local jobs find housing in other communities such as tools. Following are two strategies for getting the Columbus. There is, however, not a shortage of poorly word out about how planning can help build the constructed homes and neighborhoods, some of them community’s future. in dire need of repair.
Some corrections have been made since the previous Training for Public Officials plan. For example, subdivisions now require sidewalks All planning process participants have the responsibility and other infrastructure. to explain and support the comprehensive planning process, respect the others involved and to encourage But this plan hopes to show that more can be done, citizen participation. It is important that elected and that even in a depressed economy Jennings County appointed officials get the training they need to do the leaders can set the bar higher. Through a mix of best job they can on planning and zoning matters. small investments in neighborhood revitalization and carefully considered extension of infrastructure, the State law and even our local ordinances are often community can design a better future. complicated. Kentucky now requires their plan commission members to receive training in order to In fact, local leaders don’t have to create any new serve; Indiana's laws do not currently require that, regulations to start to see positive results. They simply but training is always a good idea. The following have to commit themselves to enforcing the rules they suggestions can assist the county in getting that
134 Jennings County Comprehensive Plan Chapter 11 Implementation Plan training to public officials: for Urban Policy & the Environment. ÙÙ Use Purdue Extension's Land Use Team ÙÙ Take advantage of membership in the American Publications, on such topics as Public Hearings and Planning Association (APA). This group publishes a Agricultural Land Preservation, available at http:// magazine, several newsletters, books and reports www.ces.purdue.edu/landuse/landuse2/pubs. on planning topics, and also hosts an annual html. The Purdue Land Use Team is also available to national conference that includes sessions for present several different land use programs in your citizen planners. For more information consult community; contact your local extension office www.planning.org for more information. In addition, Purdue offers ÙÙ Become a member of the Indiana Chapter of the their "IP Video Series" training, which is free and American Planning Association (IN-APA). This broadcast live to extension sites around Indiana. group offers annual conferences that include Past presentations are available at http://www. sessions for citizen planners and offers the ces.purdue.edu/landuse/video.html and have INDIANA CITIZEN PLANNER’S GUIDE free online included topics such as, "Green Infrastructure" at www.indianaplanning.org. This publication and "Staying Legal." includes several chapters that can be used as ÙÙ Support planning staff in their efforts to receive training materials for elected officials, plan continuing education, and request that they share commission members, board of zoning appeals the results with local planning officials. members, neighborhood organizations, and citizen committees and contains information specific to Educating the Public about Indiana. The chapters include: Planning and Zoning ÊÊ Part 1: Plan Commission Basics ÊÊ Part 2: Board of Zoning Appeals Basics Most citizens do not understand planning and zoning because it is not something they encounter every day. ÊÊ Part 3: Avoiding Pitfalls The normal human reaction is often to fear what we ÊÊ Part 4: Communications do not understand. For this reason it is important to ÊÊ Part 5: Rules of Procedure educate the public on the importance of planning and ÊÊ Part 6: Ethics zoning and how it works.
ÊÊ Part 7: Comprehensive Plans During creation of a comprehensive plan, it is important ÊÊ Part 8: Zoning Ordinances to keep the process in the spotlight. Developing a ÊÊ Part 9: Subdivision Control Ordinances relationship with local media representatives will help get the message out in newspapers and on radio. The ÊÊ Part 10: Site Plan Review county's website should include information about ÙÙ Attend or offer to host a "Nitty Gritty" Training dates of upcoming public meetings. All public meetings Session. These low-cost basic training sessions and hearings should have an educational component, for citizen planners are held several times per where the purpose of the plan and an overview of the year around Indiana, and are sponsored by IN- process are explained. APA, Indiana Farm Bureau, Purdue Cooperative Extension Service, Ball State's College of After the public hearing and adoption of the plan, the Architecture and Planning, the Metropolitan county should make the plan available on-line and in Indianapolis Board of Realtors and IUPUI's Center local libraries, as well as consider providing training sessions for anyone interested in how to use the plan.
Prepared by SDG & HWC Engineering 135 Plan Commission and Board of Zoning Appeals hearings Capital Improvement Plan: This document is related can also be educational opportunities. Many people in to the Infrastructure Master Plan but is broader in the audience have never attended one of the meetings scope. It lists the approximate location, size, time of and don't know what to expect. The surrounding availability and estimates of costs for public facilities or property owner notification letters should be written improvements to be financed with public facility fees, so they are easily understood. The commission or usually over a five-year period. This plan can include board president can help make the meeting more road improvements. understandable by making some remarks at the beginning, explaining what will happen at the meeting. Parks Master Plan: This plan takes a long term look at They can also assist by delivering a "play-by-play" or the outdoor and recreational needs of a community. It translation of the meeting, so that it is understandable is required in order to qualify for park grants from the to people in the audience. state.
The commission and board can also remove much of Thoroughfare Plan: This plan identifies the general the mystery of why they make certain decisions by location and classification of roadway facilities that sharing what state and/or local law criteria they are serve traffic from existing and planned development required to consider. The criteria can be posted on the in the county. The plan also indicates where major wall, included on the back of the agenda, etc. Having roadway improvements – either on existing or new a public discussion before voting will also help clarify alignments – are to be implemented. why you are voting the way you do. Funding Sources How is the Plan A list of potential funding sources for the Adopted? implementation items derived from the Jennings County Comprehensive Plan is included in the After a comprehensive plan is completed, there is Appendix. still one more important step to finish in the planning process. The comprehensive plan is not official until it is adopted. The Jennings County Area Plan Commission, What to Do Next North Vernon City Council, Vernon Town Council and This document provides years’ worth of suggestions the Jennings County Board of Commissioners all must for projects. It can be overwhelming to think about adopt the comprehensive plan. undertaking all of the recommendations.
What Additional Fortunately, it’s possible to look ahead to the near future and take the steps needed to implement the Planning is Needed? comprehensive plan. The following chart summarizes Comprehensive plans include all of the major land use all of the actions steps accumulated from each of the elements, but they do not take the place of technical comprehensive plan chapters. Each item is grouped studies for issues such as infrastructure and roads. To under a subject category and provided a timeline and complete future planning for Jennings County some responsible party responsible for carrying out the task. additional research is needed. It is intended that the Jennings County commissioners and plan commission use this chart on an annual basis These studies are described below: to benchmark their progress for implementing this plan.
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years) • Revise the zoning map to adequately reflect community goals in four areas: (1) Area Plan Commission • City Council Agricultural (2) Residential (3) Industrial (4) Commercial. • County Commissioners Update the zoning code to address these issues: • Amendments required by 2011 state law • Purpose Statement and Applicability Statement • Interpretation and Severability • Temporary Uses • Plan Commission Jurisdiction • Written Commitment • Development Plan Review • Zoning Certification • Variances • Conditions • Show Cause/Complaints • Special Uses • • Area Plan Commission
Land Use Agriculture Zoning • City Council • Residential Zoning • County Commissioners • Commercial Zoning • Industrial Zoning • Institutional Zoning • PUDs • Airport Zoning • Flood Districts • Signs • Parking Standards • Lot Area • Lot Width • Front Setbacks • Landscape Regulations
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years) Update the subdivision code to address these issues: • Conditional Approval of Primary Plat • Design Standards o Alleys o Streets o Easements o Blocks • Area Plan Commission o Non-Residential Subdivisions • City Council • Sewage Disposal • County Commissioners • Sidewalks
Land Use • Plats and Data for Conditional Approval • Variances and Modifications • Green Drainage • Traffic Calming • Electronic Copies • Area Plan Commission Create and maintain a Capital Improvement Plan. • City Council • County Commissioners • City Council • County Commissioners Ensure that there is an adequate supply of larger, shovel-ready industrial sites • Area Plan Commission where the planning and zoning, infrastructure, site tests and environmental • JCEDC reports, and ownership status are clearly resolved. • Utilities • County Commissioners • County Council
• Area Plan Commission • Utilities Create multiple agricultural zones for different types of agriculture. • Economic Development Economic County Commissioners • County Council
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years)
Define objective development standards within zoning ordinances that must be • Area Plan Commission met as conditions for permitted use for new agricultural facilities, rather than • County Commissioners have a special exception process for new facilities. • County Council • Develop a site scoring system based on objective criteria to determine whether Area Plan Commission • County Commissioners new facilities meet the conditions set forth in zoning ordinances. • County Council Increase code enforcement to prevent the appearance of blighted commercial • Area Plan Commission buildings. Develop a formal economic development plan for Jennings County. One of the key objectives of this plan will be to inventory and prioritize economic develop- • JCEDC ment sites in Jennings County in lieu of the U.S. 50 bypass and recent utility Economic Development Economic extensions east of North Vernon. Once North Vernon Stellar projects are completed, initiate a countywide brand- • JCEDC ing campaign to promote Jennings County as a regional destination. Make amendments to zoning and subdivision ordinances to comply with • Area Plan Commission planning-related state law changes that went into effect in July 2011. Employ basic design standards to improve the appearance of new residential • Area Plan Commission development. Conduct a countywide housing needs assessment to provide a thorough • Area Plan Commission analysis of the housing market and detailed recommendations improving and • County Commissioners diversifying the county’s housing stock. • Housing Authority Make active code enforcement a priority to address the number of houses in Housing • Area Plan Commission foreclosure and blighted areas. Explore options for neighborhood revitalization in certain areas, including the • Area Plan Commission Country Squire Lakes community and any other areas identified as suitable • County Commissioners candidates for revitalization. • Housing Authority Pursue housing grant options to fund the aforementioned projects. • County Commissioners
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years) • JCEDC • City of North Vernon ing Form a housing coalition or taskforce to address local housing issues.
Hous- • County Commissioners Abundance of managed lands can be a county resource and should be viewed as a potential economic development resource for the local economy. The • Area Plan Commission community should study opportunities to take advantage of these properties. • City Council • The unique position of the county between two national wildlife refuges, • County Commissioners availability of other managed lands for wildlife activities, and proximity • JCEDC to I-65 corridor uniquely positions county to take advantage of this type • Jennings County Tourism of tourism revenue. As surface water from the Muscatatuck River provides water service for the majority of county residents, protection of this resource is of the highest priority. • Development protections should be considered along both sides of the • Muscatatuck River throughout the community, and especially between Area Plan Commission • North Vernon and the Brush Creek Reservoir. Such protections could City Council • County Commissioners include increased erosion and sediment control practices, development • Jennings Water limitations, stormwater runoff quality provisions for new development, • Soil and Water Conservation or other protections. A long term goal of establishing a conservation District corridor along the river is also recommended to protect linkages between Natural Resources Natural the various protected forest lands in eastern Jennings County.
• The potential for failing septic systems to negatively impact local water quality Area Plan Commission • County Commissioner is high. Jennings County should work towards improving the current system of • Utilities septic system dependent site development review. More detailed descriptions of • Soil and Water Conservation this issue are located in the Utility Infrastructure chapter. District Prepare a county-wide park and recreation master plan, and marketing plan with North Vernon, IDNR, and USFWS to provide a cohesive campaign to highlight • Parks and Recreation natural resource areas.
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years)
Consider identification and development protections of significant karst topography within Jennings County. Apply development protections similar to those recommended for the Muscatatuck River watershed. Since karst areas are • Area Plan Commission significant contributors to the local aquifers, steps should be taken to reduce • City Council the potential for groundwater pollution of these sensitive areas. Strategies • County Commissioners for enhancement of sediment and erosion control measures, as well as the • Utilities reduction of chemical and biological contaminates should be explored to help • Board of Public Works and protect the integrity and safety of county wells. By encouraging the appropriate Safety use of these areas through policy actions and land use controls Jennings County • Soil and Water Conservation will be taking great steps towards the protection of valuable water supplies while District also helping to ensure that potentially high costs associated with development on these unstable surfaces is avoided.
Natural Resources Natural Jennings County should work with the Soil and Water Conservation District to explore ways to make informed future land use decisions based upon an analysis of development suitability. Factors such as riparian buffers (geologically • Area Plan Commission and topographically possible due to deep stream geology), Floodplain/aquifer • Soil and Water Conservation protection, and future development potential based upon soil classifications and District suitability for septic and building improvements should be a key consideration • County Commissioners as the county explores the development potential of land beyond currently developed areas.
• Area Plan Commission Develop a county-wide long range transportation plan which considers the • City Council possible long term effects on local roadways connected to the U.S. 50 bypass • County Commissioners corridor and long term needs based upon predicted development growth • County Surveyor patterns. • Streets Department
Transportation • County Highway Department
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years) • Any roads which have a direct connection to planned U.S. 50 bypass access points Area Plan Commission • should be included in the system for detailed evaluation of predicted future City Council • County Commissioners traffic volumes and appropriate long range planning efforts. Additional efforts • County Surveyor should be made to monitor the condition of these roadways since increased • Streets Department traffic volumes can lead to premature decay of the roadway condition. • County Highway Department • Continue to work with INDOT in evaluating the long term traffic needs of the City Council • Streets Department S.R. 7 and S.R. 3 corridors. Ensure that the necessary roadway improvements • Board of Public Works and are in place prior to, or in conjunction with, approved industrial and commercial Safety development. • Area Plan Commission Work with the North Vernon Airport Authority and MUTC to ensure the • required airport safety zones are respected and that approved improvements Area Plan Commission • surrounding the airport facility are compatible with the long range plans for City Council, County Com-
Transportation missioners airport operations. This recommendation also includes the addition of a North • MUTC Vernon Airport Compatible Use Overlay District. A more detailed description of • North Vernon Municipal this issue, and the details of the intent of a compatible use overlay district are Airport discussed in the MUTC Compatible Use Area CSA section of the plan. • City Council Work with the North Vernon Airport Authority and MUTC to determine the • County Commissioners potential for taking advantage of excess airport capacity and the proximity of the • JCEDC new U.S. 50 bypass to develop an enticing location for additional logistics and • MUTC military industry development. • North Vernon Municipal Airport
The most cost effective areas for future growth for Jennings County will be in areas • City of North Vernon surrounding North Vernon because of the availability of existing infrastructure. • Utilities New commercial, industrial and residential subdivision growth should be • JCEDC structure directed into areas that are served by existing water and sanitary sewer systems. - Utility Infra
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years) Development in western Jennings County along the U.S. 50 corridor is currently limited since sanitary sewer service is not available. Development will likely require the construction of a new wastewater treatment facility to serve this • City of North Vernon area. The county should work with the City of North Vernon to plan for this • Utilities mid-to-long term growth opportunity. Until sanitary sewers are available, development should be limited in these areas. The county should develop updated standards for septic systems. First, the county should require lots to be large enough for both a primary septic system, and a backup system in the event the first system fails. A lot size with a minimum of 1 to 2 acres (or more if the site has large changes in elevation) may • Area Plan Commission
Utility Infrastructure be necessary. Second, the county should limit the use of septic systems to low • County Commissioners intensity residential developments. Commercial, industrial and larger residential subdivision developments should be directed toward areas with public sanitary sewer systems. Code Enforcement: Consider – over time – stockpiling a fund that would allow • Area Plan Commission the county to pursue legal cases against the most egregious offenders. Code Enforcement: Further explore other enforcement systems, such as ticketing, • Area Plan Commission to see if they would be more effective. Code Enforcement: For problem lots, new property owners should first have to obtain permits for land improvements and then, when land meets code • Area Plan Commission regulations, the owners may receive the deed to the land. Code Enforcement: Farmers and businesses need to be encouraged to purchase
CSAs the correct permits. • Area Plan Commission • Permits can bring in steady revenue. Code Enforcement: It would be beneficial if the APC could find an individual with grant writing experience. • Example: No vehicle was authorized for code enforcement. A loan for • Area Plan Commission a vehicle was recently approved; however, interest payments have to come out of current funds.
Prepared by SDG & HWC Engineering 143 Jennings County Comprehensive Plan Implementation Guide Implementation Timeline
Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years)
Town of Vernon: Vernon should revisit the possibility of requiring some sort of design standards or historic preservation for buildings, at least on the main square. • These regulations do not have to be financially crippling to business • Town of Vernon owners, they only have to protect the town’s main asset – its historic • Area Plan Commission charm. If these guidelines are not in place beforehand, there is no reason to believe that sooner or later someone will want to build some- thing that most of the community sees as inappropriate to the town’s architecture. MUTC: Establish a MUTC Influence Zone Overlay District. The intent of this district is to identify the areas around MUTC that take into consideration the direct and indirect implications of the training facility. This ordinance should recognize the rights of property owners to continue to use their property as they have in the past. It should also identify types of new development that would be CSAs appropriate in the district, and give MUTC the ability to voice any concerns with proposed development before permits are issued. It would also be appropriate to consider requiring a waiver acknowledging the issues in the district prior to approval of new developments. • This Influence Zone Overlay District will be a ‘transparent’ zone which • Area Plan Commission lies on top of existing Jennings County zoning. It can be used to add additional provisions beyond those required by the existing zoning ordinance. For the Jennings County plan it is recommended that the underlying zone will determine the permitted land uses , while the overlay district will clearly define the future uses and special conditions which will be compatible with continued military operations. This can include the design of infrastructure, transportation facilities, required additional setbacks, and buffer zones. This can also include any other restrictions that will meet the overlay zones intended purpose.
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Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years) MUTC: Update Zoning Maps and ordinances to recognize and define land uses compatible with MUTC within the overlay district. This effort should also be undertaken for areas surrounding the North Vernon Municipal Airport. Current zoning ordinance must be examined to help determine future actions which • Area Plan Commission must be taken to redefine and rezone land to meet the development needs of these critical areas. It is recommended that this process include MUTC officials, Airport officials, and surrounding landowners.
MUTC: Jennings County should undertake planning efforts for improved short term and long term housing facilities to accommodate military personnel and • Area Plan Commission training operations participants.
MUTC: Assess ongoing impacts to local roads from additional traffic volumes and heavy equipment hauling related to convoy vehicles traversing through Jennings County. These assessments should be summarized and incorporated into long range transportation planning efforts. Outcomes of this effort can be suggested • Area Plan Commission convoy routes, long term transportation improvements, and budgeting for long CSAs term maintenance needs on impacted roads. Jennings County should consider developing a county road access plan to manage transportation issues when roads are closed due to MUTC exercises and trainings. Country Squire Lakes: Increase communication between CSL residents and county officials to move toward shared goals. Topics of early meetings could include: • Area Plan Commission • Leadership development of CSL residents so that the area can engage in • Country Squire Lakes resi- sustained and long term redevelopment. dents • Enforcement action on derelict and abandoned property. • County Commissioners • County plans for the lots it owns. • County acquisition of the remaining CSL roads. • Area Plan Commission Country Squire Lakes: Formalize a comprehensive plan for CSL and its relationship • Country Squire Lakes resi- to the rest of the county. dents
Prepared by SDG & HWC Engineering 145 Jennings County Comprehensive Plan Implementation Guide Implementation Timeline
Long Term Action Item Short Term Mid Range Responsible Party (13-20
Category (1-5 Years) (5-12 Years) Years)
U.S. Bypass: Work with U.S. 50 Bypass Community Advisory Committee to • Area Plan Commission provide guidance on selection of a preferred eastern corridor alternative. • JCEDC
U.S. Bypass: Support the original land use goals of the U.S. 50 bypass plan • Area Plan Commission identified in the 2009 North Vernon Comprehensive Plan. Some modifications • JCEDC are proposed on the updated land use plan to reflect alignment changes made • City Council, County Com- since that plan was developed. missioners U.S. Bypass: Work with the APC and City of North Vernon to update the North • Area Plan Commission Vernon Comprehensive Plan so that there is one common land use plan adopted • City Council for the corridor. • Area Plan Commission U.S. Bypass: Develop a master plan for a business/industrial park on U.S. 50 •
CSAs City Council between North Vernon and MUTC. The study should make recommendations • County Commissioners on the land use controls, how to balance agricultural preservation in the area, • MUTC compatibility with Rose Acre Farms, and the demand for the location. • JCEDC U.S. Bypass: Work with utility providers to develop an incremental improvement • Area Plan Commission plan to ensure that development does not jeopardize the integrity of the utility • JCEDC services and to ensure planning of appropriate utility improvements to allow for • Utilities implementation of future development plans. U.S. Bypass: Ensure that appropriate land preservation measures are in place to help protect and preserve watersheds (especially along the Muscatatuck River), • Area Plan Commission prime agricultural land, and greenspace.
146 Jennings County Comprehensive Plan Appendix Appendix
Approval of Plan by Jennings County EDC Board Meeting Minutes: December 20, 2012
Steering Committee Meeting Summaries Meeting 1: August 29, 2012 Meeting 2: September 19, 2012 Meeting 3: October 31, 2012 Meeting 4: November 14, 2012 Meeting 5: November 28, 2012
Presentation of Plan to Area Plan Commission December 3, 2012 Meeting Minutes
Funding Sources
Project Sheets Agricultural Land Preservation Capital Improvement Plan Creating a Neighborhood Association Downtown Plan / Main Street Program Overlay Zones Partnering Stream Corridor Protection
Public Survey Results
148 Jennings County Comprehensive Plan
STEERING COMMITTEE MEETING #1 AGENDA Jennings County Comprehensive Plan August 29, 2012
Attending Steering Committee Members Name Organization Email Jeff Barger County Commissioners, APC [email protected] Jessica Brunner Jennings County EDC [email protected] Chris Ertel Redevelopment Commission, TIF [email protected] Kathy Ertel Jennings County EDC [email protected] Larry Fagersten MUTC [email protected] Brad Lage Jennings County APC attorney Albert Jackson Jennings County EDC Jerry Lamb Jennings County EDC [email protected] Brad Ponsler Indiana Farm Bureau [email protected] John Post Jennings County APC [email protected] Barb Shaw Community Foundation [email protected] Cheryl Trisler Jennings County APC [email protected] Dan Wright Town of Vernon, Mayor [email protected] William Wright Jennings County APC
Consultants: Scott Burgins, SDG Cory Daly, HWC Catie Kosinski, SDG Cory Whitesell, HWC
I. Introduction o Scott Burgins introduced the consulting team: Scott Burgins, 800-939-2449, [email protected] Catie Kosinski, 800-939-2449, [email protected] Cory Whitesell, 317-347-3663, [email protected] Cory Daly, 317-347-3663, [email protected] o Steering committee members introduced themselves briefly. o Meeting notes, draft reports, and public information will be posted on the project website: www.sdg.us/jennings.php
II. Fundamentals of a Comp Plan o Scott explained that the Jennings County Economic Development Corporation (EDC) found a grant to fund the planning process. The EDC provided the match and there is no cost to the county for this plan. However, the plan needs to be completed in a short timeframe to meet the grant deadline of December 31, 2012. As a result, the plan approval process is somewhat different; the EDC needs to approve the plan before the deadline. Other approving bodies – the Jennings County Area Plan Commission (APC), North Vernon, Vernon, and county commissioners – can approve the plan after the grant expires. Cory Whitesell said that a public hearing will be held before the grant expires. He stressed that the plan won’t get to every issue due to the timeframe, but it can focus on priorities. He noted that North Vernon will not be updating its plan. The county’s current plan, approved in 1994, is out of date but a solid plan. o Scott reviewed the fundamentals of a comprehensive plan. He said that this information can help committee members respond to questions from the community. Some of the benefits of planning include: directing development to areas with sufficient capacity to support it, protecting property values, and making sure adjacent uses are compatible. The SDG/HWC team has a history of creating plans that are realistic, practical, easy to understand and implement. o Scott asked the steering committee members to share their biggest hopes for the county and this planning process. Their responses are included below: Put us in the right direction for potential growth and preserves areas of natural beauty Better code enforcement and zoning Road map to opportunity Want to see economic development and jobs Land use that protects land values Tie in with North Vernon plan Protect county for conservation Economic development, improve standards, protect heritage Compatible development around MUTC and economic development Encourage partnerships Industrial land development is at a standstill; need land around infrastructure, spec buildings, industrial sites on rail, and sewer near MUTC o One concern about the plan is that land zoned for agricultural use does not mean that “anything goes”
III. Role of the Steering Committee o Scott said the role of the steering committee is to bring ideas and comments to the meetings. He asked that people not “stew in silence” about topics. This is especially important with such a compressed planning timeframe.
IV. Demographic Profile o Catie Kosinski reviewed a draft demographic profile of Jennings County. The data show a slowly growing community that is projected to continue steady growth for the next forty years. Population growth in Geneva and Vernon townships has outpaced other areas in the county. According to the 2010 Census, Country Squire Lakes has the second highest population in the county. o Educational attainment levels in the county are well below the state average; the county ranks 92nd out of 92 counties in terms of adults with a B.A. or higher degree. Several committee members were surprised by this. It was pointed out
Jennings County Comprehensive Plan Steering Committee Meeting 1 2 August 29, 2012 that area employers may require certifications and two-year degrees that would not be counted as Bachelor’s Degrees. The data shows the educational attainment of the county’s residents not the workforce that includes many commuters from nearby counties. o When adjusted for inflation, median household income levels peaked in 1999 and declined. It was noted that data – when available – for Vernon will be added to comparisons with North Vernon and Country Squire Lakes. o The county’s economy remains dependent on manufacturing. o Jennings County is a net exporter of workers. However, the county’s resident labor force lost nearly 950 workers between 2008 and 2010. o When adjusted for inflation in 2010 dollars, median home values in Jennings County and North Vernon declined between 2000 and 2010. The Country Squire Lakes community has a noticeably higher percent of vacant housing units than North Vernon and the county as a whole.
V. Determining Priorities o Several steering committee members submitted responses to a survey that asked them to rank their priorities for Jennings County. The top priorities based on their responses included: Economic development Code enforcement Water supply Country Squire Lakes o Cory Whitesell led the steering committee through an exercise to identify areas in the county that they want to protect. Responses included: Natural resources MUTC Water supply/river Vernon’s historic district County park Reservoir Nature preserve Covered bridges o Next, Cory asked people to identify aspects of the county that need to change. Responses included: Quality of life/community image Clean up properties, especially in Vernon Community has become more transient Only one sewer plant in the county o When asked to identify critical sub areas (CSAs) that the comprehensive plan will look at in depth, the steering committee overwhelmingly agreed that the bypass impact area was the most important. The following reflects the CSA priorities identified by the steering committee:
Jennings County Comprehensive Plan Steering Committee Meeting 1 3 August 29, 2012 1. Bypass Impact Area: The planned US 50 bypass impact area influences land use, housing, economic development and creates a new destination in the county. 2. MUTC: Maintaining a compatible use area “beyond the wire” is important. An overlay zone may be a tool to protect this area from residential development. 3. Code Enforcement: This is especially a problem in Country Squire Lakes but also in other areas. 4. Country Squire Lakes: Jennings County currently owns several hundred homes in this development and has tried to take over two main roads. The area’s reputation is hurting the county’s housing market by association. 5. Quality of Life: Preserving the county’s natural resources and small town charm is important to the county’s image.
VI. Focus Group Invitees o The consultants plan to conduct focus groups in September. One focus group will be with Country Squire Lakes residents.
VII. What’s Next o Revise public survey to focus on CSAs and write press release o Post North Vernon Comp Plan, current Jennings County Comp Plan, and revised demographic profile on the project website o Upcoming meetings: SC #2: Wednesday, September 19th at noon SC #3: Wednesday, October 31st at noon SC #4: Wednesday, November 14th at noon SC #5: Wednesday, November 28th at noon
Jennings County Comprehensive Plan Steering Committee Meeting 1 4 August 29, 2012 The Fundamentals of a Comprehensive Plan
Reasons for Planning Promoting a healthy community Emergency management Celebrating nature Good drainage Growth management Flood mitigation Economic development Public safety Agricultural preservation Clean water Infill development Good schools Wildlife management Supporting the arts Creating transportation choices Utility support The future of our children Cultural preservation Providing recreation Land use problems Historic preservation Keeping out bad stuff Encouraging a variety of housing Healing community
Why do communities plan? One of the reasons communities engage in a planning process is to ensure that the needs of the whole community are considered, not just benefits to individuals. Community planning is based upon a concept of the public interest.
Some flexibility in the use of individual land is given up in exchange for creating a community in which the interests of all are considered. When communities plan, they establish and implement public policy, a guideline for decisions on development and redevelopment. Plans help a community achieve a character that residents of the community recognize and support.
If all our communities were the same, one plan would suffice for all. But each is different, and a plan should enhance the unique characteristics of each place.
Why do you want to plan? Planning's Fundamental Goal: Improve our community Two things that distinguish a great place from an ordinary place and that are something we plan for: 1. Satisfactory local government services 2. Desirable community amenities (Quality of life)
Jennings County Comprehensive Plan Steering Committee Meeting 1 5 August 29, 2012 Benefits of Planning 1. It can lower operating costs for local government 2. It can help local government provide services more efficiently 3. It can help ensure that developers pay their fair share of improvements 4. It can direct development to areas with sufficient capacity to support it (i.e., new industries where utilities are available) 5. It can coordinate development and future capital expenditures such as streets, sewage treatment plants, civic buildings, and schools 6. It can save you from paying in the future for remedies for poorly planned development, such as purchasing right-of-way or easements to widen streets or extend utilities 7. It can protect property values 8. It can preserve and enhance community character 9. It can improve quality of life 10. It can make sure adjacent uses are compatible 11. It can plan for safe streets and sidewalks 12. It can prevent unwise development, such as subdivisions without proper sewage disposal 13. It can protect environmental quality
Requirements of a Comp Plan In Indiana, comprehensive planning is permitted by the 500 Series of Title 36-7-4 of the Indiana Code. This law empowers cities, towns, and counties to adopt plans. Any plan adopted in Indiana must contain at least the following three elements: 1. A statement of objectives for the future development of the jurisdiction. 2. A statement of policy for the land use development of the jurisdiction. 3. A statement of policy for the development of public ways, public places, public lands, public structures, and public utilities.
Optional: In addition, the law provides for a number of optional elements, including, but not limited to parks and recreation, flood control, transit, natural resource protection, conservation, flood control, farmland protection, education, and redevelopment of blighted areas. Most comprehensive plans in Indiana have some of these optional elements.
Most plans also contain maps showing future streets and desired future land use patterns. Future land use and transportation maps are not required in Indiana. Land uses usually are divided into categories, and different colors or patterns are used to show areas for future residential, commercial, industrial, open space, institutional, and agricultural uses.
Jennings County Comprehensive Plan Steering Committee Meeting 1 6 August 29, 2012 Normally, locations should not be overly specific. For purposes of the comprehensive plan, it is more important to establish that a school should be located in a certain area than to designate the specific site for the school -- locations should be approximate, not exact.
The Planning Process While each planning process should be custom-designed to meet community needs, nearly all contain the same core elements: 1. Evaluate existing conditions, including strengths and weaknesses, community character, demographics, natural features, etc. 2. Establish goals and objectives for the future 3. Identify alternatives for meeting the goals and objectives 4. Select the most desirable alternative 5. Devise and adopt tools to implement the plan (zoning, subdivision control, capital improvement programming, etc.) 6. Evaluate the success of the plan 7. Revise the plan
These steps are part of a continuing process. Plans must be evaluated, changed and updated as the community changes. These changes can be gradual, as through demographic trends, technological change, or slow economic growth or decline. Sometimes change is more sudden, such as the location of a large new industry in a small community, the loss of a major employer, or a natural disaster (flood, etc.).
In Indiana, it is the plan commission’s responsibility to prepare and adopt a plan and to recommend it to the town council for adoption.
Effective Plans Some features are common to most plans: 1. Emphasis on physical development, but recognize that physical development of a community is interrelated with social and economic factors, and take that into account. 2. Comprehensive and general. 3. Realistic and practical. 4. The planning process offers the opportunity to dream, but the plan should recognize what is possible. 5. Long-range. 6. Easy to understand. There are no extra points for length or weight. The plan should be as simple and as clear as possible.
Jennings County Comprehensive Plan Steering Committee Meeting 1 7 August 29, 2012 7. Easy to distribute. Recognize that the internet is here to stay and your plan should be available on-line. Consider distributing CDs, not just paper copies. 8. Reflects a community consensus.
There are five simple rules to keep in mind when developing an effective comprehensive land use plan: 1. The plan should be general; it is a guide to development, not a tool for determining the precise location of each feature. 2. The plan should be designed to build on strengths and to lessen weaknesses. 3. The plan should be developed with implementation tools in mind – know how you will make your vision happen. 4. The plan should have a long-range component aimed at shaping the community for 15- 20 years. 5. The plan is not an ordinance; the council adopts by resolution. A resolution is more appropriate than an ordinance, because the plan is a guideline, not a regulation.
Why we need you A plan that does not have the support of the majority of those who will be affected by it is doomed to fail! Local leaders like you are key players in arriving at that consensus. Not only do you share your observations and views about the community, you can ensure that the full range of views is sought and considered. People will become involved because you ask them to.
The Plan must result from an effective citizen participation process. Elected officials will not be guided by the plan’s policies unless these officials know that the plan represents the wishes of their constituents.
What is your biggest concern about the plan?
Your biggest hope?
Jennings County Comprehensive Plan Steering Committee Meeting 1 8 August 29, 2012 STEERING COMMITTEE MEETING #2 SUMMARY Jennings County Comprehensive Plan Sept. 19, 2012
Attending Steering Committee Members Name Organization Email Jeff Barger County Commissioners, APC [email protected] Dave Beesley Jennings County Water Jessica Brunner Jennings County EDC [email protected] Clyde E. Campbell Kathy Ertel Jennings County EDC [email protected] Larry Fagersten MUTC [email protected] Ray Hughes Jennings County APC Jerry Lamb Jennings County EDC [email protected] Brad Ponsler Indiana Farm Bureau [email protected] John Post Jennings County APC [email protected] Cheryl Trisler Jennings County APC [email protected] Chuck Waggoner Redevelopment Commission (attending [email protected] for Chris Ertel) Dan Wright Town of Vernon, Mayor [email protected] William Wright Jennings County APC
Consultants: Scott Burgins, SDG Cory Daly, HWC Catie Kosinski, SDG Matt Maloney, SDG Cory Whitesell, HWC
I. Update Researched CSAs Made additions to Demographic Profile (Town of Vernon) Posted Jennings County Comprehensive Plan Survey to JCEDC site; sent out press release Posted SC Meeting 1 notes to project website
II. Action Item o Indiana Department of Transportation’s U.S. 50 Bypass Community Advisory Committee (CAC) has invited comp plan SC member to attend November meeting. Kathy Ertel will serve as the steering committee’s representative to the CAC.
III. CSA: Code Enforcement o Scott reviewed the draft “Consequences of Planning Decisions” with the group. This chapter is intended to help people making planning decisions explain reasons for regulations to the public. o Scott asked steering committee members to think of intersections and other areas in Jennings County that could be included in this chapter of the final plan. o Enforcement issues were discussed. For example, decisions made about land use can live on for years. Allowing piecemeal development can lead to competing uses and problems with providing services. Making exceptions and spot rezones can create future problems. Costs of providing services to rural developments are transferred to tax payers. o Local issues: Keep permit fees commensurate with surrounding areas APC budget is limited; revenues primarily come from fees Trash, litter, debris, and older homes are problems in the county Demolition is expensive APC updated the county’s Subdivision Ordinance in 2006; amendments were made ahead of this comprehensive plan update Airport is planning to update its zoning district to prevent residential development in areas around runway Waste management and failing septic systems are problems, especially in unincorporated areas such as Paris, Paris Crossing, Butlerville, etc. Water lines are also an issue IACT no longer advocates the use of interlocal agreements between county and city planning departments o The consultants have scheduled to visit “hot spots” in Jennings County with planning staff on Thursday, October 4, 2012.
IV. CSA: Quality of Life o Scott reviewed the draft “Making the Case for Planning” chapter. o Scott asked what quality of life issues the plan should address. o Quality of life priorities: Lack of businesses and jobs to keep kids here; brain drain Amenities to attract families to the area Diverse housing mix that includes housing for seniors, apartments, and efficiency units More shopping and eating options Housing in Vernon
V. CSA: Bypass Impact Area o Cory Daly explained that plans for the U.S. 50 Bypass were prepared by Parsons Engineering. The west portion of the bypass is under construction and following a different route than planned in the North Vernon Comprehensive Plan. o There are currently several options for the north portion of the bypass that are under review. The CAC could accept recommendations from the county’s planning steering committee before making a decision early next year. o There are several areas that will be impacted by the north portion of the bypass: the North Vernon Airport, Muscatatuck Urban Training Center (MUTC), Selmier State Forest, etc. o The North Vernon Comprehensive Plan was completed before construction of the bypass and shows the west route closer to the city’s corporate limits with areas zoned
Jennings County Comprehensive Plan Steering Committee Meeting 2 2 September 19, 2012 for light industrial and residential development nearby. The bypass route on the west side will actually be farther out in the county. o In the North Vernon Comprehensive Plan, the north portion of the bypass passes through areas preserved from development along the Muscatatuck River and through the Selmier State Forest. o Cory asked the committee if they wanted the north bypass to remain a limited access one. o Allowing development – especially dense residential – on the north side of the proposed U.S. 50 Bypass near MUTC is not advised. o The proximity of the North Vernon Municipal Wastewater facility near the city’s east side will likely draw development to that area. o There is potential for more land zoned for industrial in the north bypass area. o One consideration to keep in mind is that this plan does not want to create challenges with the North Vernon Comprehensive Plan maps. o MUTC wants to maintain transportation access to the North Vernon Airport. However, MUTC has no preference for zoning along the bypass.
VI. CSA: MUTC Impact Area o Cory said that HWC will review the Joint Land Use Study Implementation Plan for recommendations for local jurisdictions. o MUTC has its own sewer treatment facility. o Any development along the proposed U.S. 50 Bypass will likely have drainage issues. o Discussion of Influence Zone Overlays for MUTC and airport: Allows for compatible uses such as agriculture; Rose Acres is an intense agricultural zone Protects future residents from noise, etc. Potential for development of defense-related business/industry in between MUTC and Airport Perception of land owners has changed about overlays
VII. People to Interview for Comp Plan
VII. What’s Next o SC #3: Wednesday, October 31st at noon o SC #4: Wednesday, November 14th at noon o SC #5: Wednesday, November 28th at noon
Consultant Team o Scott Burgins, 800-939-2449, [email protected] o Catie Kosinski, 800-939-2449, [email protected] o Cory Whitesell, 317-347-3663, [email protected] o Cory Daly, 317-347-3663, [email protected] o Project Web Site: www.sdg.us/jennings.php
Jennings County Comprehensive Plan Steering Committee Meeting 2 3 September 19, 2012 Comprehensive Plan Timeline
Preliminary Work Review/Summarize planning documents o Most recent county comp plan o North Vernon comp plan o Zoning, etc. Decide CSAs Demographic Profile Public Priorities Survey
Meetings SC #1: Wednesday, August 29th at noon o Present preliminary findings o Explain deadline o Approve scope and CSAs o Assign review teams
September o Conduct Interviews/Focus Groups
SC #2: Wednesday, September 19th at noon o Present outlines with CSAs
SC #3: Wednesday, October 31st at noon o Discuss chapter first drafts Part I o Discuss findings from public input
SC #4: Wednesday, November 14th at noon o Discuss chapter first drafts Part II
SC #5: Wednesday, November 28th at noon o Present final drafts
Approval Process December 2012 o Jennings County EDC approves
Jennings County Comprehensive Plan Steering Committee Meeting 2 4 September 19, 2012 STEERING COMMITTEE MEETING #3 SUMMARY Jennings County Comprehensive Plan Oct 31, 2012
Attending Steering Committee Members Name Organization Email
Jessica Brunner Jennings County EDC [email protected] Kathy Ertel Jennings County EDC [email protected]
Larry Fagersten MUTC [email protected] Ray Hughes Jennings County APC Jerry Lamb Jennings County EDC [email protected] Brad Ponsler Indiana Farm Bureau [email protected] John Post Jennings County APC [email protected] Jason Sanders Erler Industries Inc. [email protected] Barb Shaw Jennings County Community Foundation [email protected] Cheryl Trisler Jennings County APC [email protected] Chuck Waggoner Redevelopment Commission [email protected] William Wright Jennings County APC
Consultants: Scott Burgins, SDG Cory Daly, HWC Lacey Dannenberg, SDG Matt Maloney, SDG Cory Whitesell, HWC
Others: Clyde Campbell, Jennings Water Inc. Corinne Finnerty, McConnell Law
I. Update
Toured County Attempted to schedule CSL focus group Posted SC Meeting 2 notes to project website
Introductions o Opening Statements Everything is going to move quickly from this meeting forward in order to finish by December. Review teams were assigned to each chapter of the updated comp plan. Every person should read and review at least two chapters. STEERING COMMITTEE MEETING #3 SUMMARY Jennings County Comprehensive Plan Oct 31, 2012
A Stakeholder list was passed around. Everyone was asked to list individuals who they thought should be involved in this process. Survey is on the JCEDC website and individuals should be encouraged to fill it out and tell others.
II. Development Principles - Review of the 1994 CP and 2007 North Vernon CP
o Housing: Issues of zoning requests, the selling of one-acre parcels of land, and if the county should encourage home businesses were discussed. Issue with two different documents between North Vernon and Jennings County participants in the meeting agreed that both documents need to have same set of priorities There is not a historical review committee for the county. It was stated that the county talked about having one in 1994 but it was never followed through on. The old CP wanted to encourage home business by avoiding regulation. It was explained in the meeting that this hinders downtown growth. Businesses should be encouraged to open downtown. . If individuals want to work from home, the downtown has areas for “live work spaces” . Plan must clearly define what is considered a home business. Is all self- employment a home business? . It has been observed that home business will follow rules at beginning and then start to creep over, which affects residential areas. Residential areas should be preserved. Old CP states that the plan commission should avoid zoning for upscale housing. Committee discussed how this may hinder growth and be a bad practice. Regulations for mobile homes and trailer parks were discussed along with confined feeding operations. . Easy, hard, hardest options for mobile home should be discussed so that committee can pick what option is best for CP. . Plan needs to introduce a distance that confined feeding operations must be from certain structures and areas such as schools, residential etc.
o Infrastructure: The old CP indicated that the county has full range of property tax supported debt instruments. It was discussed that this wording should be more generic to encourage the county to be more proactive. No one at the meeting knew if the county has an integrated road and bridge plan. STEERING COMMITTEE MEETING #3 SUMMARY Jennings County Comprehensive Plan Oct 31, 2012
North Vernon has only one waste water plant. There has been discussion of a new one for past 10-15 years. Jennings Water needs to be notified of all new buildings a head of time. It was explained that there are many rules and laws that the county might not be utilizing at this point to help enforce regulations.
o Code enforcement: Different methods for code enforcement were discussed along with practices that work and don’t work. Kathy believes the county is in a “broken window phase,” and the county needs to set a precedent for taking care of properties to get out of this phase.
III. Discussion of Future Land Use Map
o A map of the county was used to pinpoint areas that could be used for specific development. For example, the northern part of Jennings County is popular for farmland but is also ideal for regular housing, especially for those who commute to Columbus for work. o It was explained to the committee that the most cost effective way to develop an area is to keep development tight. This means that development needs to be guided. Development can be guided through strategic placement of infrastructure and needed amenities such as sewage and water. o The committee was asked what they envision for growth. Is growth 5-acre lots or subdivision type lots? It was discussed how areas with homes and farmland could run into problems, best to keep the two separate as much as possible.
IV. What’s Next
o SC #4: Wednesday, November 14th at noon o SC #5: Wednesday, November 28th at noon
STEERING COMMITTEE MEETING #4 SUMMARY
Jennings County Comprehensive Plan November 14, 2012
Attending Steering Committee Members Name Organization Email Jeff Barger Jennings County Commissioner [email protected]
Jessica Brunner Jennings County EDC [email protected] Kathy Ertel Jennings County EDC [email protected]
Larry Fagersten MUTC [email protected] Corrine Finnerty McConnell Law [email protected] Ray Hughes Jennings County APC Greg Hicks State Farm Insurance [email protected] Albert Jackson Jennings County EDC Jerry Lamb Jennings County EDC [email protected] John Post Jennings County APC [email protected] Cheryl Trisler Jennings County APC [email protected] Chuck Waggoner Redevelopment Commission [email protected] Dan Wright Mayor of Vernon [email protected] William Wright Jennings County APC
Consultants: Scott Burgins, SDG Cory Daly, HWC Catie Kosinski, SDG Cory Whitesell, HWC
Others: Wayne Stearns
I. Updates Finished draft chapters Posted SC 3 meeting notes on project website: http://www.sdg.us/jennings-county-comprehensive-plan/
II. Discussion: Future Land Use Map
Cory Daly led the discussion about the county’s future land use map. He started by focusing on the three remaining proposed routes for the east route of the U.S. 50 bypass. Since completion of the North Vernon Comprehensive Plan in 2009, the west route of the bypass shifted closer to the city
Jennings County Comprehensive Plan Steering Committee Meeting 4 1 November 14, 2012 than was originally thought. The SR 7 commercial corridor area is already growing, and industrial development has gone along the SR 3 corridor. There is ample opportunity for residential and commercial development near North Vernon.
Cory Daly explained that the county’s land use is good with minimal spot development centered around existing communities. The draft future land use map does not suggest many changes in the county; most of the changes are around the greater North Vernon area along the U.S. 50 bypass. Cory asked committee members if they had preferred routes for the east side of the bypass, which has been narrowed down to two options.
Cory Daly and Cory Whitesell suggested that one of the two alternate southern routes may be the most cost effective. They pointed out that Parsons, the engineering firm working on the route analysis, is interested in input from this steering committee on preferred routes. A few committee members expressed a preference for the north route, but Kathy Ertel was quick to point out that the likely route is going to be what INDOT can afford to do. She said that environmental reviews of the proposed routes have not been completed and could ultimately determine what INDOT decides. As the draft future land use map shows, all of the bypass routes go through the resource management corridors along the Muscatatuck River, the primary water source for the City of North Vernon and much of Jennings County. The lighter green color on the map along the Muscatatuck River indicates that surface water quality needs to be protected. The committee supported the idea of having a flexible land use plan with regard to the final U.S. 50 bypass route.
The draft future land use map shows a new industrial area outside of the MUTC buffer zone along U.S. 50. Currently, force main sewer improvement work is being completed out to MUTC that will accommodate industrial and residential development between North Vernon and MUTC. Access points along the bypass are not known on the east side; the comprehensive plan will need flexibility for the future.
If the community were not limited by infrastructure capacity, many committee members expressed long-term interest in industrial development along the southwest side of North Vernon. There is acreage that could be zoned industrial on the west side if sewer infrastructure were added. Future utility investment on the west side of North Vernon may open up an industrial corridor closer to I- 65. This would cater to industrial development that wants to locate near an interstate. It was noted that the U.S. 50 bypass makes the industrial areas near the North Vernon Municipal Airport more convenient. However, the steering committee supported the long-term goal of developing industrial growth between North Vernon and Seymour. The 2009 North Vernon Comprehensive Plan still includes long-term plans to build a waste water treatment plant on the west side of the city. It was recommended that the future land use map include “bubbles” for likely residential development close to schools and another for industrial development with the understanding that growth depends on construction of the new satellite plant. Residential is already growing between Aden and North Vernon but should be discouraged until infrastructure extensions are made.
Jennings County Comprehensive Plan Steering Committee Meeting 4 2 November 14, 2012 Mayor Wright expressed concern that all the gateways into Vernon and North Vernon would be industrial. The committee supported light industrial zoning on the west side of North. The plan can included different levels of industrial development with design standards. The plan can also recommend that development not occur in certain areas until specific conditions are met – such as the construction of a new sewer plant.
III. Development Principles
Scott Burgins explained that development principles are the foundations for decisions made by the Jennings County Area Plan Commission and county commissioners. The following shows discussion, revisions, and additions to the draft development principles.
Land Use Planning & Enforcement o Comment: “We need it in writing.” Reinvestment vs. New Growth o Revision: Preserving neighborhood characteristics in North Vernon and Vernon. North Vernon o No comment. Vernon o Comment: “We have a lot of visitors in the county for wildlife refuge. Our parks are our great resources. We could add a development principle for natural resources.” o Revision: Add Natural Resources development principle. ED o No comment. Utilities o Comments: . “Water is a long-term deterrent to growth.” . “Sewer extension is a bigger problem than water.” . “IDEM puts a lot of regulation on surface water treatment plants.” . “We may need a ground water plant or raise rates.” . “Surface water treatment may become cost prohibitive.” o Revision: Cut “public” water. Ag land o Comments: . “Farm Bureau encourages CAFOs – do not use their advice.” . “Farm Bureau gives you the variables – you can adjust the distances, requirements. You can talk to people in Fayette, Blackford counties, etc.” Housing o Comments: . “Add language about promoting the development of market rate and rental housing, and high to middle level housing.”
Jennings County Comprehensive Plan Steering Committee Meeting 4 3 November 14, 2012 . “Include stipulations for driveways, sidewalks, etc. that will promote higher end housing.” U.S. 50 Bypass o No Comment.
IV. Draft Chapters The draft chapter need to be vetted by steering committee review teams. The consultants will send chapters in Word format via email. Review teams will read materials and submit comments and revisions by Monday, November 26, 2012.
V. What Needs to Happen Last steering committee meeting is Wednesday, November 28th o Review Land Use and Implementation chapters Present plan to APC and public on Monday, December 3rd o SDG/HWC will be on the agenda at 7pm o This will not be legally advertised but SDG will send a press release to publicize the meeting o SDG will invite the JCEDC board to attend North Vernon Redevelopment Commission – meeting on December 17th Mid-December: JCEDC board meeting to approve plan
Jennings County Comprehensive Plan Steering Committee Meeting 4 4 November 14, 2012 STEERING COMMITTEE MEETING #5 Notes Jennings County Comprehensive Plan November 28, 2012
Attending Steering Committee Members Name Organization Email
Jessica Brunner Jennings County EDC [email protected] Chris Ertel TIF District [email protected] Kathy Ertel Jennings County EDC [email protected] Ray Hughes Jennings County APC Jerry Lamb Jennings County EDC [email protected] John Post Jennings County APC [email protected] Cheryl Trisler Jennings County APC [email protected] William Wright Jennings County APC
Consultants: Scott Burgins, SDG Cory Daly, HWC Catie Kosinski, SDG
I. Update
Scott reviewed activities and updates since the previous steering committee meeting. The consultant team emailed chapters for review, revised the development principles and economic development chapter, and sent a press release about the December 3rd APC meeting. A summary of the previous steering committee meeting was posted to the project website. Scott asked Cheryl to provide an introduction about the planning process at the upcoming APC meeting. The JCEDC board is set to vote on the plan at a meeting on December 20th. The APC will want to keep the momentum going after the EDC approves the plan. Ultimately, the county commissioners will need to approve the plan. Final chapters will be posted on the project website the week of December 3rd (http://www.sdg.us/jennings-county-comprehensive-plan/).
II. Review: Land Use Chapter
Cory presented the Future Land Use Map that incorporates feedback from the steering committee, stakeholders, and interviews. The map shows revised growth areas from what was proposed in the 2009 North Vernon Comprehensive Plan. Cory noted that the new Jennings County Comprehensive Plan recommends specific steps to take in long-term growth areas. Phasing development and implementing design standards should provide flexibility in addressing long-term growth.
Discussion of proposed long-term growth areas included: West of North Vernon toward Hayden: This area needs a detailed plan for development that would identify appropriate land uses, infrastructure, transportation, etc. Such a plan could include phases that are 15-20 years in the future. At this point, it is uncertain what will change when the U.S. 50 bypass is completed. The dynamics of the area are still unknown. Eastern side of North Vernon: The committee now has a better idea of bypass routes. The bypass creates another future growth corridor surrounding the Oakdale area between Butlerville and North Vernon. Infrastructure is in place for future economic development. Industrial areas: North Vernon and Jennings County is losing industrial land for the bypass. This comprehensive plan can be used to leverage for grants to develop future industrial land to compensate for what is lost. Compatible use areas around North Vernon Municipal Airport and MUTC: There was extensive discussion of how to characterize these areas in the plan. o Map shows the airport with the same boundaries as the North Vernon Comprehensive Plan. o The plan includes discussion of economic development issues related to MUTC. o The compatible use areas are not designed as restrictive. The plan attempts to identify conflicts that might occur as development pressures increase. o The plan is intended to guide decisions in these sensitive areas and to encourage neighborly relations between MUTC and the community. o Some committee members expressed concerns with the joint land use study and proposed overlay zone. o This comprehensive plan acknowledges the benefits of having MUTC in the community. o MUTC can provide guidance and recommendations. o The plan shows a 1-mile buffer around MUTC. o Several committee members expressed concern that people need to be informed about potential issues in the buffer zone. . The zone is not restrictive. . It was suggested that the plan use the word “consideration.” o The committee discussed the possibility of amending zoning regulations to include buffer areas around high noise areas such as the race track to protect people from noise nuisance. . Requiring residents to sign an informed consent form is one option to explore for sensitive development areas.
Cheryl asked for a map that shows the boundaries of the TIF districts. Kathy said that the JCEDC can provide a TIF map.
Cory noted that the county’s new future land use map should be used to update the North Vernon Comprehensive Plan.
Jennings County Comprehensive Plan Steering Committee Meeting 5 2 November 28, 2012 The committee may need to revisit how much support the APC needs to get the plan passed after the New Year.
Cory said that maps would be updated and language changed in the Land Use Chapter to reflect the steering committee’s discussion.
Scott led the group through the text of the Land Use Chapter. He emphasized that the plan is conservative in nature and recommends incremental growth as infrastructure is expanded. It makes a strong case on some issues and some course corrections. It is intended to help you educate the public as the community move forward with implementing the plan.
The Land Use Chapter includes some things that are required in the comprehensive plan such as the future land use map. A recreation and greenspace development principle was added after the previous steering committee meeting. The chapter also includes discussion of issues for future decisions. These are areas that the community and APC can explore through technical advisory committees. They include CAFOs, design standards and a capital improvement plan. Scott said that information for residential and industrial design standards will be added in the final chapter.
III. Discussion: Guidelines for Future Decision Making
One area that the plan has not focused is the Town of Vernon. Cory said that he would talk with Mayor Wright about issues to include in the plan. Cheryl pointed out that Vernon is about to have its post office hours reduced which may negatively impact how county government functions. The final plan will discuss historic preservation in Vernon and include a map of the town that will show trails planned in the surrounding area. Another issue to address in Vernon may be street parking.
This section of the Land Use Chapter provides a brief discussion of some topics that did not get covered thoroughly in the report.
The discussion of combined animal feeding operations (CAFOs) does not commit the county to any position. It simply provides background information on the issue with some recommendations based on lessons learned in other communities.
Other topics for future decision making include commercial design standards and a capital improvement plan. The committee asked that residential and industrial design standards be added as well. Again, these discussions provide information but no recommendations. However, a committee may want to explore these topics in the future.
The Land Use Chapter concludes with a thorough review of the county’s zoning and subdivision ordinances. K.K. Gerhart-Fritz, AICP, who prepared the review, is available for workshops with the APC and county commissioners.
Jennings County Comprehensive Plan Steering Committee Meeting 5 3 November 28, 2012
IV. Review: Implementation Chapter
Scott reviewed the Implementation Plan which includes a table of all recommendations in the plan. This table shows the timeframe and responsible parties for each action step. The Appendix will include a list of potential funding sources.
V. Review Team Check-in
All edits suggested by review teams have been incorporated. Scott noted that the final draft of the Code Enforcement CSA will emphasize the importance of cooperation between city and county.
VI. Steering Committee Check-in
Scott asked steering committee members if they thought this plan is going to help Jennings County. Kathy asked that the plan include some language to convey that the county encourages and supports North Vernon’s Stellar Communities projects.
VII. What’s Next o APC Meeting: Monday, Dec. 3 at 6 p.m. (w: JCEDC & Redevelopment Commission) o JCEDC Meeting: December 20 at noon
Jennings County Comprehensive Plan Steering Committee Meeting 5 4 November 28, 2012
Funding Sources A list of potential funding sources for implementing the Jennings County Comprehensive Plan is shown below.
ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:
Planning/design/constructio n of Treatment plant low-interest improvements Water line (2.7-3.95%) Incorporated extensions Water storage loans, 20-year cities/towns, facilities Wetland protection term Note: An counties, and restoration; On-site additional .50% sanitary/conservatio sewage disposal; BMP for State reduction may Indiana n or regional ag & stormwater; Riparian Revolving Loan be permitted if Finance sewer/water districts Buffers & Conservation; Fund (SRF) a non-point- Authority SRF Private & Not-for- Wellhead Protection source project profit facilities are Planning/design/constructio is financed eligible only for n of Treatment plant along with a DWSRF loans improvements Sewer line point source extensions to unsewered project. Combined sewer overflow corrections
low-interest; 10-year term Any project addressing up to Indiana existing pollution Small Issue $150,000; SRF-eligible Finance abatement: Wastewater, Loan Program reduced communities Authority Drinking Water Non-point closing costs source no cost SRF PER review
Municipalities, Construction of Treatment political Facilities (Precipitate subdivisions, Process, Adsorption privately owned Processes, Ion Exchange Arsenic Indiana Community Water Processes, Membrane Remediation Grant Program Finance Systems and non- Filtration, Point of Use Grant Program Authority profit Nontransient Devices) Planning & design Noncommunity Activities System Water System Must Consolidation System serve less than Restructuring 10,000 residents ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:
short-term Existing water or Serve rural areas Rural financing wastewater systems and that aren't located Community ($100,000) for the short-term costs Rural within the Assistance predevelopmen incurred for replacement Community boundaries of a Partnership t costs equipment, small-scale Assistance municipality with a Revolving Loan associated with extension of services, or population of 10,000 Fund proposed water other small capital projects or greater. & wastewater that aren't part of O&M.
Rural areas/towns with population <10,000 including Grants up to municipalities, 75% of project Rural counties, special- Developing water and cost and loans US Dept. of Development purpose districts, waste disposal systems in 40yr term; Agriculture (RD) not-for-profit rural areas 4.25-4.5% corporations Lower interest income areas qualify for more grant assistance.
Rural areas/towns with population <10,000 including municipalities, Grants for up counties, special- Rural to 75% of cost purpose districts, Development of planning or US Dept. of Water and Wastewater not-for-profit Planning up to $15,000 Agriculture Infrastructure Planning corporations Must Grants 25% match be qualified for the required "poverty" bracket - 80% of the statewide nonmetro MHI ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:
Project must: (a) serve a rural area (b) serve one and only one community recognized in latest U.S. census; (c) Deploy Basic Broadband Rural Broadband Grants Establish broadband Development Transmission minimum US Dept. of access to rural Community Service, free for 2 $50,000 (no Agriculture communities which are Connect Grant years to all Critical max) matching unserved Program Community funds required Facilities; (d) Offer Basic Broadband; (e) Provide a Community Center with at least 10 computer access points
Projects that contribute to Non-entitlement long-term community cities, towns or planning and development Grants up to counties Must Projects that will $600,000, either benefit areas Community Office of prevent/eliminate slums or minimum 10% at least 51%+ low- Focus Fund Community & blight, or projects that serve local match to moderate income (CFF) Rural Affairs a low to moderate income ($350,000 for OR eliminate slum population Often requires Fire Stations) or blight; cost per income survey to beneficiary may not determine low-income exceed 5000 eligibility
Planning activities for Non-entitlement projects that will cities, towns or prevent/eliminate slums or Grants up to counties Must blight, or projects that $50,000, either benefit areas Office of serve a low to moderate CFF Planning $30,000 (for at least 51%+ low- Community & income population. Grant single utility), to moderate income Rural Affairs Planning activities must be minimum 10% OR eliminate slum completed w/in 12 mos. local match or blight; cost per Often requires income beneficiary may not survey to determine low- exceed 5000 income eligibility ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:
Projects that lead to the Watershed IN Dept. of reduction and elimination of Grants 5% Projects Grant Environmental pollution, increase the local match (104(b)(3)) Management effectiveness of the NPDES program
Cities, towns, conservancy districts, special assessment districts, with population under Flood Control IN Dept of 1,250 who have Projects that establish or Revolving Loans up to Natural been authorized to modernize water supply Fund: Rural $150,000 Resources maintain/operate the systems Water Supply system; entity is unable to borrow funds elsewhere; cannot exceed 2% of assessed valuation
Grants for up Counties, cities, Projects the will lead to job to 50% of towns, sewer Public Works & creation and retention in project costs, Economic districts Sometimes Economic severely distressed 80% if severely Development townships and Adjustment communities including distressed; 20- Administration economic Grants water and wastewater 50% match development projects required corporations
City, Town, County, Special taxing district, economic Construction of airports, development facilities, tourists Grants commission, attractions; sanitary sewer Industrial (typically Indiana nonprofit lines, storm sewers or Development $2,500 per job) Economic corporation, drainage; water; roads; Grant Fund Typically not Development corporation sidewalks; rail spurs and (IDGF) exceed 50% of Corp. established under sidings; information and cost IC 23-17, Regional high tech. infrastructure; water, sewage, or property; surveys solid waste district, Conservancy district ADMINISTERED FUNDING TYPE FINANCING WHO QUALIFIES FUNDING TO BE USED FOR BY:
Incorporated cities/towns, counties, Grants average water, wastewater, non- sanitary/conservatio Special award $2,000 point source and Congressional n or sewer/water Appropriations to $300,000 stormwater infrastructure Appropriation districts qualify for Projects (SAP) 45% local SRF, CDBG, USDA, RD SAP, also known as match required can be used as local match the State and Trial Assistance Grants (STAG)
Roadway must be on Federal Aid Federal Aid Federal System Group III Approx. $30M Transportation Cities & Towns available per INDOT Roadway improvements Aid to Local (<50,000, but above year 80/20 Communities 5,000) Group IV match Towns (<5,000 population)
Roadway must be on Federal Aid Federal Aid Safety improvements at System Group III Hazard Approx. $6M Intersections, signage, Cities & Towns Elimination and available per INDOT pavement markings, signal (<50,000, but above Safety (HES) year 90/10 modifications, lighting 5,000) Group IV match improvements Towns (<5,000 population)
AGRICULTURAL LAND PRESERVATION
Agricultural land boosts local economies directly through sales, jobs, support services, and businesses such as feed and seed stores, farm machinery retailers, and secondary businesses such as food processing. It also provides stabilizing diversity to the state’s economy. Farmland is one of Indiana’s most important resources.
Farmland demands fewer public services than residential, commercial, and industrial land uses. This irreplaceable natural resource provides high quality and increasingly popular locally-grown food as well as water filtration, groundwater recharge, floodwater storage, habitat for wildlife and recreation. Maintaining the scenic, cultural, and historic features of agricultural landscapes also preserves a rural way of life and a scenic getaway.
Loss of prime farmland occurs due to a myriad of reasons. According to Rick Chase, Ag and Natural Resources Educator at the Purdue University Cooperative Extension Service, the five most common reasons agricultural land is converted to other uses are as follows:
Increased Demand on Land During the 1990s, population and economic growth in the U.S. stimulated competition for land. This demand has caused increased development pressure on lands previously used for production of agricultural crops, commodities, livestock, or forests. Agricultural land is desirable for building because it tends to be flat, well drained and generally is more affordable to developers than to farmers or ranchers.
Agricultural Business Realities Farming is a risky business subject to the fluctuations of nature and government policies, and further aggravated by the farmers’ inability to set prices for their products. Over time the land owned by farmers becomes their insurance against unplanned events. Land is often used as a hedge against future economic demands, such as those caused by poor health, retirement, or economic recession. This is also one reason many farmers want to retain control over the fate of their private property
Local Zoning Policies In an attempt to discourage sprawl, many local communities in Indiana have required large lot minimums for residential development. These minimums usually range from five to 40 acres. The intention of these minimums is to discourage homebuilders in rural areas by requiring the purchase of large lots (5-10 acres in most cases). However, the result is usually the opposite of what is intended. People’s desires to build homes in the country outweigh the cost of large tracts of land. So persons who really want only a small tract of land for a home feel forced to purchase a larger tract. The result is often a loss of agricultural land and continuation of sprawl in agricultural areas.
Other Government Policies Tax policies such as tax abatements for industry, capital gains taxes, and income tax deductions for homeowners contribute to the conversion of farmland to non-farm uses. These policies provide financial encouragement for nonfarm businesses and new homebuilders to invest in new construction.
Highway construction policies can contribute to farmland depletion. The construction of new highways contributes to the loss of much prime farmland. It is more desirable to build roads on flat, productive land than on rocky hills with little topsoil. Highways and interstates also make it more convenient for workers to live farther away from their places of work. Most people want better, more convenient highways, but easy commutes from rural residences to urban centers give homeowners the incentive to live farther away from work.
The building permit and development approval process is often more expensive and lengthy in urban areas than in the rural community. Consequently, land developers are attracted to the plentiful land and fewer regulations in rural counties.
The Desire for a Rural Setting The rural character of agricultural areas can be attractive to families wanting to escape urban centers. Persons fleeing cities often cite noise, pollution, crime, and weak educational systems as problems that plague urban areas. The rural life is often characterized as slower, more peaceful, and having less pollution and crime. However, as more people move to the country, an increased demand for public services, retail businesses, and more subdivisions often result, thus creating some of the same problems from which people were retreating when they left the cities.
Farmland Preservation Techniques The issue of farmland preservation is more than preserving farmland – it encompasses the landscape in cities, suburbs, rural communities and transportation zones between town and country. Farmland preservation efforts are destined to fail if they are anti-development or
Project Sheet – Agricultural Land Preservation 2 of 6 anti-growth. To be successful, the efforts must preserve prime farmland and direct industrial, residential and commercial growth to areas less suitable to farming.
Techniques for farmland preservation can be implemented in several ways, such as the examples listed below:
1. Enact agricultural preservation programs and policies for agricultural land.
. Assess and document existing or remaining farmland in the county.
. Identify and map agricultural soils and resources in the county.
. Initiate agricultural land mapping and monitoring programs, such as GIS, in order to document the amount of land in farm production and the rate at which it is being converted to non-farm uses.
. Compile and annually track data on the rate of urbanization and the conversion of agricultural land.
. Adopt agricultural zoning ordinances as an appropriate technique for protecting agricultural land. Such agricultural zones would limit non-agricultural development to densities and development patterns that are consistent with the continuation of agriculture.
. Create agricultural zones with minimum lot areas of at least 40 but preferably 160 acres where dense residential development is prohibited.
. Plan and zone for smaller residential lot sizes, townhouses, and apartments within already urbanized areas to increase development density, removing pressure for development on farmland.
. Update zoning and subdivision ordinances to support and encourage conservation design, which allows development and farmland to co-exist.
. Update the comprehensive plan to establish clear goals and policies with regard to community character, agricultural protection, and suburban growth
. Update the comprehensive plan to address the preservation of Agricultural Land and to specify programs and techniques for its protection
. Use the county comprehensive plan to identify agricultural priority areas and other areas suitable for development.
. If applicable, eliminate exemptions from the subdivision ordinances and processes that would result in the division of agricultural land into parcels that are too small for commercial farming.
Project Sheet – Agricultural Land Preservation 3 of 6 . Enact enabling legislation to adopt the following programs: Agricultural District Programs, Purchase of Development Rights and Transfer of Development Rights.
Agricultural District Programs are voluntary programs designating special areas for agricultural use only. In exchange for enrollment in the program, farmers receive benefits that vary from state to state. The State of Kentucky has such a program and details can be found on their website at: www.conservation.ky.gov/programs/agdistrict/.
Purchase of development rights (PDR) programs pay landowners for the development rights to their property. An appraisal is made of the difference between the property value as agriculture land and its value if sold for development. The landowner is paid the difference, and the land is permanently protected from development. Several states, including Michigan, Massachusetts, New Jersey, and Pennsylvania have these programs. Indiana has adopted such a program, but the funding is limited.
Transfer of Development Rights (TDR) programs allow the transfer of development rights from one parcel of land (sending parcel) to another (receiving parcel). The sending parcel is then permanently protected by a conservation easement. This shift in land uses allows locally designated growth areas to receive the growth while protecting agricultural lands. Communities will need to identify areas where increased density would be appropriate so that such a receiving zone can be established. In Indiana, TDR’s are not widely used.
. Adopt policies and ordinances, such as a right-to-farm law, that recognize prime farmland as an important environmental, economic, and community asset.
. Implement policies to limit premature expansion of urban infrastructure (such as roads and sewers) into agricultural areas.
2. Use development design principles to integrate development with agricultural preservation.
. Direct growth to already built-up areas, where developable land is available, through infill development, brownfield redevelopment, and transit-oriented development.
. Encourage greater housing densities in developed areas with existing infrastructure, ultimately reducing pressure on perimeter agricultural land.
. Develop incentives to encourage development where infrastructure is in place.
Project Sheet – Agricultural Land Preservation 4 of 6 . Use clustered designs and conservation development techniques on non-prime farmland in areas where development of agricultural land is unavoidable.
3. Encourage farming practices that sustain the soil, fertility, and environmental quality of the land.
. Practice soil conservation and erosion control to keep fertile soil on the fields. This includes practices such as no-till farming, tilling along contours, and installing windbreaks.
. Reduce the use of environmentally damaging fertilizers and pesticides.
. Install natural buffers and filter strips along water bodies to slow water runoff and filter agricultural fertilizers, pesticides, and other chemicals.
. Practice crop rotation to maintain healthy soil.
. Integrate some natural habitat and wetlands into agricultural land management plans for wildlife protection.
. Practice conservation irrigation (using only the amount of water that is absolutely necessary for plant growth) to conserve groundwater resources.
4. Reduce the incentive for farmers to sell their land by improving the profitability of farming.
. Help maintain the viability of small farms by promoting, marketing, and supporting alternative farming strategies such as specialty and niche farming, roadside stands and markets, organic or other value-added produce, small- scale farming operations, alternative crops, and community-supported agriculture (CSA) operations, which connect local growers to local consumers.
. Encourage local farmers to use state and federal programs that assist farmers who protect natural resources.
. Apply lower property tax rates or tax credits to agricultural land, making agriculture more profitable.
. Work with farmers to discover innovative ways to use farmland for mutual benefit, such as wind farms, bio-fuel production, on-farm composting of municipal yard waste, and irrigation of crops with treated municipal wastewater.
Project Sheet – Agricultural Land Preservation 5 of 6
Sources: Policy Guide on Agricultural Land Preservation, American Planning Association, 1999
Agricultural Land Preservation, Sustainable Development Series, Northeastern Illinois Planning Commission and the Campaign for Sensible Growth, 2004
Agricultural Land Protection in Indiana by Rick Chase, Ag & Natural Resources Educator, ID 225, Purdue University Cooperative Extension Service, 1999
How Important is Central Indiana Farmland?, Compilation of Resources by Shelby County Community Preservation Group
Protecting Prime Farmland in Indiana, by B. R. Wheeler and G. C. Steinhardt, Department of Agronomy; and C. A. Sargent, Department of Agricultural Economics, Purdue University, Agronomy Guide, AY 245
The Deck Is Stacked Against Farmland, by Tom Condon, courant.com, August 31, 2008
Project Sheet – Agricultural Land Preservation 6 of 6 CAPITAL IMPROVEMENT PLAN
A Capital Improvements Plan (CIP) identifies capital projects (and some major equipment purchases) during a five year period, providing a planning schedule and identifying opportunities for financing the projects in the plan. Capital Improvements Plans coordinate community planning, financial capacity, and physical development.
A CIP typically includes:
. List of capital improvements (projects or major equipment) to be made
. Projects ranked by priority
. Project cost estimates
. Plan for financing the projects
. Schedule for construction or completion of the projects
There are a number of benefits that may be realized from the Capital Improvements Plan process including:
. Coordination between capital needs and operating budgets
. Enhancement of the community’s credit rating, control of its tax rate, and stability in debt service obligations
. Identification of the most economical means of financing capital projects
. Coordination of public capital investments with other public and private development initiatives (Massachusetts Municipal Association, 1997)
The process for developing a Capital Improvements Plan varies by community but may include the following steps:
. Establish a capital planning committee (often the department heads or superintendents)
. Inventory existing assets
. Evaluate projects that have been previously approved, are incomplete, or have not been implemented
. Assess the community’s financial capacity . Identify new projects by soliciting and evaluating requests from staff
. Prioritize projects
. Develop a financing plan
. Adopt a Capital Improvements Plan
. Monitor and manage the projects included in the plan
. Update periodically (typically annually)
The inventory of assets should include all buildings and major equipment and, if possible, utilities, roads, and sewers. It should document the need for replacement, expansion, or repair of all physical assets in the community. This is facilitated by documenting the year the facility (or equipment) was purchased or acquired, the date(s) of improvement(s), the condition and extent of use of the facility or equipment, and any scheduled dates for reconstruction, expansion, or replacement (Massachusetts Municipal Association, 1997).
While some communities use specific “grading systems” for establishing the priority ranking of their projects, including cost-benefit analysis is not always necessary. Some priorities are difficult to establish using fixed systems and may not reflect the social or political realities of the community. Nonetheless, establishing a prioritization for projects is important for scheduling and budgeting purposes.
The financing plan should include not only the estimated initial cost of construction, but also estimates of the annual operating and maintenance costs. These represent long-term financial commitments and should be included in the long-term operating budget.
Source: I-69 Community Planning Program Toolbox
Project Sheet: Capital Improvement Plan 2 of 2 CREATING A NEIGHBORHOOD ASSOCIATION
Neighborhood associations can be defined as a voluntary association of homeowners and businesses gathered together to protect their property values and to improve the neighborhood. A neighborhood association can build relationships among neighbors, create a unified voice in local government decision making and provide the basis for neighborhood improvement.
Neighborhood associations are different from homeowner associations, where developers create a set of covenants, conditions and restrictions for each lot in their subdivision in addition to common areas in the development. Homeowner associations are generally mandatory for property owners where they exist, and they can be recorded on individual property deeds.
Components of a successful neighborhood association include:
. Defining Clear Goals & Objectives Clearly defined goals promote communication and provide members with direction and a sense of accomplishment. Goals and objectives need to be realistic and attainable.
. Written Operating Procedures To ensure continuity from year to year, especially when officers and leaders change, your association needs to have written operating procedures and policies, such as a set of bylaws. The written procedures should address the purpose of the association, the boundaries it serves, titles and duties of your group’s leadership, when and how leaders are selected, frequency of meetings, voting procedures, definition of membership, etc.
. Democratic Process of Leadership/Officer Elections Through the election of officers/leadership, members are able to participate in the development and direction of the association. Election of officers such as president, vice-president, secretary and treasurer, also helps to promote officer/leadership accountability to the members.
Project Sheet – Creating a Neighborhood Association 1 of 3 . Solid Leadership A neighborhood leader needs to have the vision and the ability to build consensus, to delegate duties and authority to others, to encourage neighbor involvement and maximize neighborhood talent.
. Committees Committees allow the neighborhood leadership to delegate issues (identify and research problems and solutions) and meet its goals by involving a number of members. Standing committees, which operate continually, could address key issues such as newsletter and communication, welcome, safety, social functions, etc.
. Neighbor Input and Involvement The key to a vital and active association is members - neighbors involved in their association. A neighborhood association serves as the foundation to bring neighbors together to address neighborhood issues, promote team building, and serve as a vehicle for neighbors to pool their resources and maintain the integrity of their neighborhood.
. Funding Neighborhood associations have expenses and should operate with a budget capable of supporting association goals. Membership dues are the main source of funding for neighborhood associations. The association leadership, specifically the treasurer, should provide a monthly report of the revenues, expenses and balance on hand.
The Hillsborough County Office of Neighborhood Relations in Florida suggests the following steps to determine if there is support for a neighborhood association in your area:
1. Inventory the neighborhood – get together with neighbors and friends and form a committee to identify housing, schools, businesses, recreation areas. Determine what can be improved.
2. Find a meeting place and select a meeting date convenient to most.
3. Create meeting announcement flyers and distribute as many places as you can think of.
4. Request articles in local papers announcing meeting.
Project Sheet – Creating a Neighborhood Association 2 of 3
5. Invite community leaders (both local and surrounding areas), heads of community organizations, House and Senate representatives, police and/or sheriff, city/county department heads, etc who can explain the benefits of an association in your neighborhood.
6. Night of meeting – have your committee set-up tables and chairs; set out refreshments; have greeters at the door with sign up sheets and “interest lists” – put out nametags.
7. Introduce your special guests and have them say a few motivating words.
8. Have audience members introduce themselves (name/occupation).
9. Discuss if there’s a need for an association.
10. Invite questions, comments or concerns from the audience.
11. Invite attendees back to second meeting
12. Thank everyone for coming.
13. Have the committee assist with clean up.
Source: Organizing Neighborhood Associations, Hillsborough County, Florida Office of Neighborhood Relations, 2003 (full text available at www.hillsboroughcounty.org)
Project Sheet – Creating a Neighborhood Association 3 of 3 DOWNTOWN PLAN / MAIN STREET PROGRAM
Downtown plans and “Main Street” programs are similar in that they are plans with specific goals for specialized areas. Downtown plans refer generally to a type of plan that can be prepared by the local planning authority or a consultant. Using a range or approaches, Main Street Programs are more structured and are accredited by a national entity that reserves the right to the name Main Street as a protected brand. Both serve the community for a common goal, and are able to complement each other in revitalizing the downtown area(s).
Problems evolving in many small community downtown’s
Rensselaer, IN Downtown Plan stem from a number of trends ranging from access and parking, changing roles of the downtown, and the phenomenon of big box retail offering more varieties of goods, to name a few. Historically, downtowns and main streets have been the vibrant centers of many communities. However, when chain stores and strip developments are located on the fringes of a community, these areas suffer. Fueled by the automobile and convenience of the one-stop-shop, many downtowns and main streets have become less competitive for business and a lively citizen presence.
There are many good examples of small Indiana communities such as Madison, Crawfordsville, and Newburg which have revitalized their downtowns through well conceived planning programs.
Downtown plans generally identify ways to revitalize downtowns that have suffered from population and commercial decline. They are meant to be a guide for the future. They promote smart use of existing land, identify area development needs, encourage pedestrian friendly streetscapes, analyze existing traffic and plan for future traffic, and identify methods and incentives to spur growth and revitalization.
General issue categories are usually condensed into unique goals with milestones—based on cost—to reach them (immediate, short-term, long-term). The ultimate goal of a downtown plan is to provide a lasting influence that revitalizes an area to where it becomes self-sustaining.
In addition to making recommendations for physical development, downtown plans may also include an economic analysis of the current conditions. From this they can include suggestions on how to increase the economic vitality based on community needs or how to institute promotion and marketing programs for the downtown area.
Main Street Programs Most Main Street programs exist as nonprofit, single-entity organizations, or as a sub-entity of organizations that already have a vested interest in the area in which the Main Street program is to be implemented.
Main Street programs seek to revitalize downtown areas that have lost pedestrian traffic and commercial activity into the sustainable areas they once were. This established process has been distilled into four points:
1. Organization
2. Promotion
3. Design
4. and Economic Restructuring
Mooresville, IN These four points are further supported by eight principles that guide the implementation of a successful Main Street program. For more information on these principles, as well as the four points and the entire Main Street program visit http://mainstreet.org/.
The Main Street program is monitored by a national organization that oversees and accredits all Main Street programs. This allows for a strong network of cities with Main Street programs and provides credibility for the endeavor.
Source: I-69 Community Planning Program
Project Sheet – Downtown Plan 2 of 2 OVERLAY ZONES
An overlay district is a “transparent” zone that lies on top of the existing zoning. It is typically used to add additional design standards or restrictions beyond those required by the existing zoning. Unless specifically modified by the overlay district, development adheres to the base district (existing zoning).
Overlay Districts are used differently in different communities, but they generally are used to unify streetscape and architecture without monotony, control traffic problems and signage, and provide for open space and landscaping. Overlay Districts do not attract development, but they ensure that the development that occurs is higher quality.
An overlay district is usually used when there is a special public interest to be served that does not coincide with already mapped traditional zones. An overlay district may cover parts of several zones or only a portion of an underlying zone. Generally, the underlying zone determines the permitted land uses, while the overlay district restricts the design, requires additional setbacks, or sets into place any other restrictions that meet the district’s purpose. In cases where there is a conflict between the requirements of the overlay district and the underlying zoning, the overlay restrictions apply (Zoning News, 1991).
Overlay districts are most common for:
. Downtown areas . Historic areas . Corridors . Airport development . Natural resource areas (rivers, shore lines, etc.)
Some of the other types of overlay districts are:
. Transit supportive (or oriented) development . Infill . Pedestrian walkability
In some cases the overlay district may reduce the requirements for setbacks, landscaping, or parking to preserve a specific character (such as in a downtown area). An overlay district in some instances will modify the permitted uses of the district in order to preserve or promote the character of the district.
The following can be regulated in an overlay district:
• Lot size • Accessory buildings • Building height and area • Architectural design • Landscaping • Storage and loading areas • Parking • Lighting • Signage • Access points • Development review procedure • Land uses Westbrook, ME Overlay Zone
A local government’s authority to create an overlay district is implied in the delegation of the power to enact zoning restrictions and create zoning districts. One purpose of zoning is to ensure consideration for the character of areas and their suitability for conserving the value of buildings and encouraging the most appropriate use of the land (Pace, 2001). In Indiana the statutes say that “A geographic area may be subject to more than one (1) district,” hence authorizing the use of overlay zones.
Overlay zones are adopted the same as any other zoning amendment. When the text amendment is made creating the regulations for the overlay zone, a map amendment should also be adopted to establish the boundaries for the overlay zone. When an applicant seeks to vary from the requirements of an overlay district, they must apply to the Board of Zoning Appeals for a variance just as they would if they were varying from the requirements of the base district.
Source: I-69 Community Planning Program Toolbox
Project Sheet – Overlay Zones 2 of 2 PARTNERING
Communities can gain many advantages and economies of scale from partnering with other local governments to conduct planning activities and provide certain services. Planning issues do not necessarily follow municipal boundaries. Therefore, planning at a regional level can provide a better picture of issues and result in more effective solutions. Regional planning or partnering provides opportunities to recognize and respond to needs and opportunities in a collective fashion.
Communities are becoming more connected as cities and towns experience growth in and around their jurisdictions. Commute patterns regularly extend beyond where a person lives; and large developments (residential, commercial or industrial) in one area affect the growth and traffic patterns of the entire region. Regional planning or partnering can be an effective way to address these issues at an appropriate scale. Multiple communities’ resources are collectively applied for the betterment of the region.
Specific benefits from regional planning or partnering include:
. Economies of scale in providing municipal services such as water, sewer, electric, etc. and sharing revenue. . Additional resources that may not otherwise be available. . More effective environmental solutions and management since streams, wetlands, lakes, etc. do not respect political boundaries. . Educational opportunities from collaboration. . Clear agreements regarding annexation and municipal services for newly annexed areas.
A local government can manage its own growth and predict the growth around it, but it cannot manage the growth for an entire region. With regional/ intergovernmental planning, the entire region’s growth can be planned for and managed more effectively.
Consolidating a Service Neighboring towns, cities and counties can partner and pool their financial and personnel resources in providing a particular service. For example, a city or town could partner with the county to provide planning services. The two governments could benefit by hiring one planning director instead of duplicating this service in each government entity.
Many smaller communities cannot dedicate the needed financial resources to planning efforts due to limited budgets. Providing these services could cause a financial burden on the local government, and therefore, planning services might not be offered. Partnering to provide planning, or other, services is an option to provide the service but not create an overwhelming financial burden.
Partnering for a Project Local governments can also partner for a particular project or planning effort. If both the city and county have a need to update their comprehensive plan, the two individual projects can be combined. Partnering also allows for better coordination between the two entities.
Partnering on a project allows for multiple benefits. By planning on a larger scale, issues that extend beyond an individual city’s jurisdiction can be better addressed. Environmental issues such as watershed planning or stream restoration do not stop at a town, city or county border. By allowing multiple entities partner to plan for this issue, the result will be significantly better than if each entity created a separate plan.
By partnering on a particular project, administrative and overhead costs can be decreased. This can lessen the money and time each entity would need to dedicate to the project or allow additional tasks to be completed that would otherwise not be possible. For example, if two communities partner on a plan, then both communities can consolidate steering committee and public meetings, advertising for hearings, reproduction and printing expenses, and the time to coordinate and manage the project. This could decrease the amount of financing each community would have to provide or allow the plan to expand the scope of the plan.
Many communities rely on neighboring cities or towns for various economic needs. Many residents routinely commute out of their own community daily for work or shopping. If a community builds a large regional retail development, it can greatly affect the economic vitality of a neighboring community’s small downtown or Main Street. Regional coordination can allow both communities to receive economic benefits.
Project Sheet – Partnering 2 of 3 Intergovernmental Agreements Indiana Code specifies various requirements for intergovernmental or interlocal agreements. Additional or varying requirements for particular types of projects may apply; refer to IC 36-1-7 for all requirements.
According to Indiana Code 36-1-7-3, interlocal agreements must contain the following:
• The agreement duration. • The purpose of the agreement. • The manner of financing, staffing, and supplying the joint undertaking and of establishing and maintaining a budget for the agreement. • The methods that may be used in accomplishing the partial or complete termination of the agreement and for disposing of property upon partial or complete termination. • Administration through: • A separate legal entity, the nature, organization, composition, and powers of which must be provided; or • A joint board composed of representatives of the entities that are parties to the agreement, and on which all parties to the agreement must be represented. • The manner of acquiring, holding, and disposing of real and personal property used in the joint undertaking, whenever a joint board is created under subdivision (5)(B).
Source: I-69 Community Planning Program Toolbox
Project Sheet – Partnering 3 of 3 STREAM CORRIDOR PROTECTION
A stream corridor is defined as the stream, its floodplains and a transitional upland fringe. The United States has more than 3.5 million miles of rivers and streams that, along with closely associated floodplain and upland areas, comprise corridors of great economic, social, cultural, and environmental value. These corridors are complex ecosystems that include the land, plants, animals, and network of streams within them. They perform a number of ecological functions such as modulating streamflow, storing water, removing harmful materials from water, and providing habitat for aquatic and terrestrial plants and animals.
Stream corridors also have vegetation and soil characteristics distinctly different from surrounding uplands and support higher levels of species diversity, species densities, and rates of biological productivity than most other landscape elements.
Human activity has an impact on stream quality and its ability to function. Industry, agriculture, urbanization and changing land use patterns all contribute to deterioration of important stream elements such was water quantity, water quality, wildlife habitat and recreational opportunities.
Common environmental problems documented in stream corridors can include: eroding stream banks, inadequate stream buffers, exposed pipes, altered stream channels, fish migration barriers, pipe outfalls, in-stream construction sites and trash dumping locations.
Stream corridor protection can take several regulatory and non-regulatory forms. Regulatory forms of stream corridor protection are typically local ordinance measures such as:
. Riparian Buffer Ordinances . Stormwater Management Controls . Erosion Control in Subdivision and Site Plan Review Ordinances . Septic System Standards and Management . Floodplain protection ordinances
Communities and their residents can undertake non-regulatory stream corridor protection measures such as:
. Building rain gardens in low spots to catch fast-flowing runoff from storms. . Disallowing leaves, grass clippings, sand, or other debris onto the street and into storm drains, which run into streams and lakes. Yard waste can add nutrients, increase siltation, and carry contaminates such as motor oil to the streams. . Never pour anything down a storm drain. The water is not treated before it goes into streams and lakes. . When building, preserve wetlands and trees. Design walkways, driveways, and parking areas with materials that let water to soak through. . Clean up after pets. Studies using DNA fingerprinting show that high levels of bacteria in some streams and beaches are from animal and not human waste. Much of that waste comes from wild critters such as gulls, geese and deer, but much also comes from pets. . Don't use chemicals on lawns and open spaces. Excess fertilizer and pesticides wash off the land and into the water that can increase algae in the lake near streams. . Convince local officials to leave ample waterfront areas undeveloped. . Plant native plants, grasses, trees and bushes along stream banks. Streams surrounded by a healthy mix of vegetation including grasses, shrubs and trees buffer the effects of surrounding land uses, which might otherwise harm water quality. . Keep litter out of streams.
Sources: Stream Corridor Restoration, Principles, Processes and Practices, Federal Interagency Stream Restoration Working Group, 2001 Protecting Our Streams, Association of New Jersey Environmental Commissions, 2005 Ten Ways to Protect Lake Superior (or your local watershed), Minnesota Department of Natural Resources, 2008 Protect Our Streams brochure, Mid-America Regional Council
Project Sheet – Stream Corridor Protection 2 of 2 Jennings County Comprehensive Plan Public Survey
1. What about Jennings County would you most like to change?
Response
Count
25
answered question 25
skipped question 0
2. What about Jennings County would you most like to protect?
Response
Count
24
answered question 24
skipped question 1
1 of 16 3. Please rank your TOP THREE PRIORITIES to be addressed in Jennings County. Choose from the following list of issues and indicate which issue is (#1) most important (#2) very important (#3) and also important.
Priority Issues
US 50 North Muscatatuck Urban Vernon northwest Country Squire Training Complext Code enforcement bypass impact Lakes (MUTC) area
Priority #1 20.0% (5) 8.0% (2) 12.0% (3) 12.0% (3)
Priority #2 20.0% (5) 16.0% (4) 24.0% (6) 24.0% (6)
Priority #3 20.0% (5) 28.0% (7) 12.0% (3) 28.0% (7)
4. How would you rate the following Agricultural issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Protecting farmland 12.0% (3) 44.0% (11) 36.0% (9) 8.0% (2) 25
Community support of agriculture 12.0% (3) 32.0% (8) 48.0% (12) 8.0% (2) 25
answered question 25
skipped question 0
2 of 16 5. How would you rate the following Economic Development issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Available land for new industries 12.0% (3) 32.0% (8) 56.0% (14) 0.0% (0) 25
Appropriate infrastructure in growth 20.0% (5) 64.0% (16) 8.0% (2) 8.0% (2) 25 areas (water,sewer,etc.)
Utilizing vacant properties 44.0% (11) 52.0% (13) 4.0% (1) 0.0% (0) 25
Adequate available space for 12.5% (3) 41.7% (10) 45.8% (11) 0.0% (0) 24 smaller businesses
Improvement of existing Industrial 4.0% (1) 52.0% (13) 36.0% (9) 8.0% (2) 25 Park
Access to the existing Industrial 8.0% (2) 32.0% (8) 48.0% (12) 12.0% (3) 25 Park
Airport improvements 4.0% (1) 16.0% (4) 72.0% (18) 8.0% (2) 25
answered question 25
skipped question 0
3 of 16 6. How would you rate the following Housing issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Condition of older neighborhoods 32.0% (8) 64.0% (16) 0.0% (0) 4.0% (1) 25
Condition of mobile home parks 60.0% (15) 28.0% (7) 4.0% (1) 8.0% (2) 25
Location of mobile home parks 32.0% (8) 24.0% (6) 32.0% (8) 12.0% (3) 25
Availability of single family homes 20.0% (5) 36.0% (9) 40.0% (10) 4.0% (1) 25
Availability of rental housing 28.0% (7) 36.0% (9) 32.0% (8) 4.0% (1) 25
Availability of housing for seniors 28.0% (7) 36.0% (9) 16.0% (4) 20.0% (5) 25
Availability of multi-unit housing 24.0% (6) 28.0% (7) 28.0% (7) 20.0% (5) 25
Location of residential development 20.8% (5) 29.2% (7) 45.8% (11) 4.2% (1) 24
Recreational opportunities 28.0% (7) 48.0% (12) 24.0% (6) 0.0% (0) 25
answered question 25
skipped question 0
7. How would you rate the following Land Use issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Enforcing existing regulations 44.0% (11) 24.0% (6) 20.0% (5) 12.0% (3) 25
Controlling location of subdivisions 8.0% (2) 40.0% (10) 40.0% (10) 12.0% (3) 25
Controlling look of subdivisions 28.0% (7) 32.0% (8) 32.0% (8) 8.0% (2) 25
Controlling rural and/or on-farm 4.2% (1) 25.0% (6) 50.0% (12) 20.8% (5) 24 businesses
answered question 25
skipped question 0
4 of 16 8. How would you rate the following Natural Resources issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Protecting wetlands 8.0% (2) 36.0% (9) 44.0% (11) 12.0% (3) 25
Protecting lakes & streams 8.0% (2) 56.0% (14) 24.0% (6) 12.0% (3) 25
Protecting groundwater 28.0% (7) 40.0% (10) 20.0% (5) 12.0% (3) 25
Protecting steep slopes 8.3% (2) 37.5% (9) 37.5% (9) 16.7% (4) 24
answered question 25
skipped question 0
9. How would you rate the following Transportation issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Bicycle / pedestrian trails 40.0% (10) 32.0% (8) 20.0% (5) 8.0% (2) 25
County road conditions 40.0% (10) 40.0% (10) 16.0% (4) 4.0% (1) 25
City/town road conditions 16.0% (4) 56.0% (14) 24.0% (6) 4.0% (1) 25
Traffic congestion 36.0% (9) 36.0% (9) 24.0% (6) 4.0% (1) 25
Curb and sidewalk conditions 40.0% (10) 40.0% (10) 8.0% (2) 12.0% (3) 25
answered question 25
skipped question 0
5 of 16 10. How would you rate the following Utilities issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Sewage service 20.0% (5) 32.0% (8) 40.0% (10) 8.0% (2) 25
Water service 4.2% (1) 25.0% (6) 62.5% (15) 8.3% (2) 24
Broadband / telecom availability 36.0% (9) 40.0% (10) 24.0% (6) 0.0% (0) 25
Drainage and flooding 4.0% (1) 56.0% (14) 36.0% (9) 4.0% (1) 25
answered question 25
skipped question 0
11. How would you rate the following Quality of Life issues?
Serious Moderate Response Not a Problem Uncertain Problem Problem Count
Amount of existing parks and 12.0% (3) 32.0% (8) 52.0% (13) 4.0% (1) 25 greenspace
Need for new parks and 16.0% (4) 20.0% (5) 60.0% (15) 4.0% (1) 25 greenspace
Need for walking/biking trails 32.0% (8) 44.0% (11) 20.0% (5) 4.0% (1) 25
Sidewalks 24.0% (6) 52.0% (13) 16.0% (4) 8.0% (2) 25
answered question 25
skipped question 0
12. Other thoughts about land use planning:
Response
Count
14
answered question 14
skipped question 11
6 of 16 13. What part of Jennings County do you consider your home:
Response Response
Percent Count
North Vernon 60.9% 14
Vernon 4.3% 1
Brewersville 0.0% 0
Butlerville 4.3% 1
Commiskey 8.7% 2
Country Squire Lakes 0.0% 0
Hayden 4.3% 1
Lovett 4.3% 1
Nebraska 0.0% 0
Paris 4.3% 1
Paris Crossing 0.0% 0
Queensville 0.0% 0
San Jacito 0.0% 0
Scipio 4.3% 1
Zenas 4.3% 1
Other (please specify) 2
answered question 23
skipped question 2
7 of 16 8 of 16 Q1. What about Jennings County would you most like to change?
1 I would like the zoning of my own property upgraded from agriculture to Nov 14, 2012 8:33 AM commercial. I live on 5 acres about 500 ft. outside the city limits north on Hwy #7. Part of my property is residential and part of it is agriculture. I think it should all be rezoned to commercial because there are only commercial businesses surrounding me. Looking north on hwy #7 from the 3&7 junction (east side of hwy only) the zoning should all be commercial all the way out to the new bypass. From the 3&7 junction north to the bypass there are 17 property owners. 15 are businesses, 2 are residents. It is time the entire strip was zoned commercial. Thank You, Wayne Stearns
2 More semi-skilled workers. Nov 13, 2012 10:21 AM
3 create more industry Nov 6, 2012 12:44 PM
4 Downtown and surrounding areas look horrible. Nov 6, 2012 8:44 AM
5 Business Infrastructure Nov 6, 2012 8:36 AM
6 COUNTRY SQUIRE LAKES Oct 30, 2012 3:50 AM
7 Beautify North Vernon. And have APC uphold county ordinances to get rid of the Oct 24, 2012 6:11 AM eye-sores.
8 zoning Oct 22, 2012 6:50 AM
9 More job opportunities for the youth of the county to return to. Oct 8, 2012 12:15 PM
10 Economic Development, we need to land some good paying jobs for the people Oct 1, 2012 5:44 AM of jennings county.
11 Zoning Sep 27, 2012 5:41 PM
12 Having places for teens and young adults to hang out! CSL needs big changes! Sep 27, 2012 11:33 AM Just like some of the run down places need cleaned up!!!
13 Lack of interest in our teens as a whole. Would love to a youth center with Sep 22, 2012 2:43 AM mentoring for our teens, activities and positive role models.
14 The difficulty of finding jobs and jobs for our youth. It seems like the only places Sep 21, 2012 6:04 PM hiring are factories and McDonalds usually employees mostly adults. Our kids have no way of making their money and learning responsibility.
15 poverty and drug problem Sep 21, 2012 10:33 AM
16 Opportunities for youth Sep 21, 2012 6:58 AM
17 Political corruption and the culture of political influence on the decisions made Sep 20, 2012 11:10 AM within the country.
18 Poverty, joblessness and sub-par education are paramount concerns. Sep 19, 2012 9:23 AM
19 Needs more fun activities Sep 19, 2012 6:14 AM
20 We need more proactive road management, especially for the roads effected by Sep 18, 2012 11:29 AM
9 of 16 Q1. What about Jennings County would you most like to change?
the bypass. There will be several county and city roads that will see an increase in traffic. For example, CR 200 N from the bypass to the current intersection of hwys 3 &7 will see traffic from the bypass that doesn't want to go all the way to the north end of the bypass to go to a location south of the north end, such as shoppers to JayC or the new Walmart; Therefore, we need to be more proactive in regards to the increased traffic on such roads or we will have a situation like what we had with Base Rd. when Hwy 3 N was closed earlier this year. Also, if we want to attract industry on the north side of the city, we'll want the roads that will receive industrial traffic from the bypass to the industrial parks and airport to be sufficient for such travel while maintaining safe and quality routes for local travel. And we must not forget about when the current Hwy 50 becomes the "old Hwy 50" and its continued maintenance. Although it will see less traffic, there will still be plenty of traffic, for example, to the schools and downtown; Therefore, there must be comprehensive maintenance plans in place by both the county and city so that this important travel artery will continue to be maintained properly.
21 CSL Sep 18, 2012 7:38 AM
22 CSL Sep 18, 2012 7:16 AM
23 Embrace new ideas and growth Sep 18, 2012 7:09 AM
24 Quality of Life Sep 18, 2012 6:50 AM
25 close country squire lakes and quit importing poverty into the county. fix the sr 50 Sep 17, 2012 12:42 PM and sr 3 &7 intersection to promote traffic flow. reengineer sr 3&7 north of sr 50 to facilitate safe turns.
10 of 16 11 of 16 Q2. What about Jennings County would you most like to protect?
1 I would like to see fewer old run down mobil homes parked all over the county. Nov 14, 2012 8:33 AM
2 The natural beauty of the area. Nov 13, 2012 10:21 AM
3 farm land Nov 6, 2012 12:44 PM
4 Traffic flow and parking. Nov 6, 2012 8:44 AM
5 various parks Nov 6, 2012 8:36 AM
6 QUALITY OF LIFE Oct 30, 2012 3:50 AM
7 Do what you can to keep MUTC thriving. Oct 24, 2012 6:11 AM
8 pedestrian walkways Oct 22, 2012 6:50 AM
9 The rural lifestyle of Jennings County. Oct 8, 2012 12:15 PM
10 The current employers who pay well. Oct 1, 2012 5:44 AM
11 Dowtown buildings Sep 27, 2012 5:41 PM
12 Downtown area. It's our history! Sep 27, 2012 11:33 AM
13 Green space. Sep 22, 2012 2:43 AM
14 Our natural resources and hometown feeling. Sep 21, 2012 6:04 PM
15 nature and small town hometown feel Sep 21, 2012 10:33 AM
16 Historical documents, small town community feeling Sep 21, 2012 6:58 AM
17 Sense of community that has been building within the downtown area while Sep 20, 2012 11:10 AM protecting our children from both the influence of life-altering drugs.
18 The people! People are what make communities strong. Programs and Sep 19, 2012 9:23 AM structures contribute to that only insofar as they help people. When the people are degraded by poverty and unemployment, programs will not help them.
19 The nature Sep 19, 2012 6:14 AM
20 Although the bypass will be beneficial, we must protect our natural and privately- Sep 18, 2012 11:29 AM owned social resources. For example, we must keep in mind that although the Selmier State Forest protects wildlife, that same wildlife also needs other, more open habitat such as that adjoining the Forest to the west; Therefore, we should try to maintain as large a distance as possible in order to have such wonderful wildlife for generations to come. Also, in the same area, we can't forget about privately-owned "social resources" such as St. Anne's Golf Course. Golf is probably this nation's largest hobby. Also, imagine the economic benefits it can provide, not so much from the direct sale of memberships, but think about who plays golf and what is next to St. Annes? That's right, those involved in business and the potential for business development. However, such "resources" also help to provide a quality of life that citizens expect from their communities.
12 of 16 Q2. What about Jennings County would you most like to protect?
21 Quality of Life Sep 18, 2012 7:16 AM
22 Natural Resources Sep 18, 2012 7:09 AM
23 greenspace Sep 18, 2012 6:50 AM
24 we have little to protect. Sep 17, 2012 12:42 PM
13 of 16 14 of 16 Q12. Other thoughts about land use planning:
1 When I read the building permits in the newspaper it seems every request to do Nov 14, 2012 8:33 AM something simple on your residential property or to develop a piece of commercial property takes a variance to get it done. The ratio of variances to permits seems high.
2 grow mutc towards jpg. leave farm ground for farming Nov 6, 2012 12:44 PM
3 Get serious about improving what Jennings Co. already has and making it nice Nov 6, 2012 8:44 AM and not spending new money on new projects until what is there is fixed.
4 You need a plan for small business manufacturers i.e incubator system Nov 6, 2012 8:36 AM
5 MORE LAND WITH WATER AND SEWER AVAILABLE FOR USE. Oct 30, 2012 3:50 AM
6 Glad North Vernon is addressing water pipe issues. Will solve lots of future Oct 24, 2012 6:11 AM problems.
7 Continue to improve the quality of life and job opportunities while maintaining the Oct 8, 2012 12:15 PM rural lifestyle of Jennings County.
8 The balance of jobs per the population makes it difficult for those who want to Sep 21, 2012 6:04 PM work to find jobs that are nearby. We also need a youth center so that our kids have safe places to go and have fun! Jennings County lacks in the area concerning our youth significantly!!!
9 Jennings County needs a Youth Center and more recreational business Sep 21, 2012 6:58 AM opportunities encouraged for families
10 Again, the political corruption and "cronyism" aspects of city and county Sep 20, 2012 11:10 AM government is a problem. It not only is unfortunate for current residents, but it is bad enough that prospective residents and businesses from locating to our area.
11 -The condition of public parks in North Vernon is deplorable, especially for a Sep 19, 2012 9:23 AM community that provides little else in the way of public amusement. -The design and flow of the downtown is centuries-old and completely inadequate for modern life. The bypass will help some of those issues, but revitalization is necessary. - The stretch of road from St Vincent Jennings Hospital west to Brookside drive is narrow and lacks sidewalks. There are many children, elderly folks and disable folks that walk or ride this street. THIS HAS TO BE FIXED!
12 Needs more and diverse recreational activities for children Sep 19, 2012 6:14 AM
13 Protect Muscatatuck Urban Training Ctr Sep 18, 2012 7:09 AM
14 real standards for housing in places like csl, ie outlaw camping out as a housing Sep 17, 2012 12:42 PM solution for the poor.
Q13. What part of Jennings County do you consider your home:
1 South of Vernon off 7 Oct 24, 2012 6:11 AM
15 of 16 Q13. What part of Jennings County do you consider your home:
2 Weston Sep 18, 2012 11:29 AM
16 of 16